公用事业特许经营中临时接管的行政法分析

发布时间：2018-03-03 18:28

本文选题：特许经营　切入点：临时接管　出处：《上海师范大学》2017年硕士论文　论文类型：学位论文

【摘要】：随着我国公用事业逐步地市场化,特许经营成为了公用事业的主要经营模式,政府在特许经营中的监管作用就更加重要。出于对公共利益的保护,公用事业特许经营临时接管作为一种体现政府监管责任的行政行为有其存在的合理性和必要性。但是在实践中,由于我国的临时接管的启动条件设置地过于宽泛,接管程序也无明确的规定,导致政府在进行临时接管时缺乏正当性,存在一定程度的滥用。当出现紧急情况危及公用事业运营时,政府往往忽略以监管手段来督促特许经营者改善,而是以实施临时接管来解决。政府对临时接管权力的滥用不仅阻碍了公用事业民营化的进程,还对特许经营者自主经营权及财产权造成了侵害。由于实践中对政府临时接管的争议层出不穷,因此对临时接管的法律定性、设立权限的清晰、启动标准的明确、实施程序的完善具有重大的理论价值和实践意义。本文正是以政府临时接管中存在的问题为研究对象,展开论述。首先将临时接管与行政处罚、行政征收等具体行政行为进行比较分析,笔者认为临时接管符合行政即时强制的特征,具有强制性、即时性、临时性和过渡性的特征,是行政主体为了维护社会公共利益,保证公用事业的连续性和稳定性,在私人部门因客观原因或者主观原因不能正常提供公共服务而致使公共利益受到损害或威胁时,为了避免或化解公共危机采取的即时的强制性接收和管理行为。其次我国公用事业特许经营临时接管作为行政强制措施的一种,依据我国2011年出台的《行政强制法》的规定应当由法律或者行政法规进行设立,而现行涉及临时接管的法律文件大都是部门规章、地方性法规和地方性政府规章,这些文件均不具备设立临时接管的合法权限,同时在临时接管的设立事项也不够全面。临时接管的条件也是出现各地方不统一、启动标准中“紧急情况”认定标准模糊、“公共利益”的范围界定不清,这无疑会造成行政主体拥有过度的自主裁量权,易造成临时接管的滥用。而行政主体决定临时接管并付诸实施的程序在立法上则缺乏相应的规定,公众参与和信息公开的程度也不高,导致被接管人及相关利益人的权益在临时接管过程中更容易受到损害。本文认为公用事业特许经营临时接管首要解决的问题的就是设立上的问题,由于我国现行立法中还没有一部完整的针对公用事业的法律或行政法规所以导致公用事业特许经营临时接管的设立欠缺一定的合法性,而解决这一问题的根本在于尽快制定一部《公用事业法》,在法律层面对公用事业特许经营临时接管进行系统性的规定。其次针对公用事业特许经营临时接管的条件宽泛,程序简陋等问题的解决办法则是对这些启动标准和实施程序的具体和细化,削弱行政机关一定的自主裁量权,同时严格落实公众参与和信息公开,真正发挥听证会的作用,使得我国的公用事业特许经营临时接管越来越完善。
[Abstract]:Along with our country public utilities market gradually, the franchise has become the main mode of operation of public utilities, the government regulatory role in franchising is more important. In order to protect the public interest, Public Utilities Franchise temporarily taken over as a kind of administrative action of the government regulatory responsibility has its rationality and necessity. But in practice, because the starting condition of China's temporary takeover is too broad, take over programs without clear rules, leads to a lack of legitimacy of the government in the temporary takeover when there is abuse to a certain extent. When there is an emergency endangering public utilities operation, the government often ignored by regulatory means supervise the franchisee improve, but in the implementation of the interim receiver to solve the abuse of power. The government will temporarily take not only hindered the process of privatization of public utilities, but also on the Charter The operator independent operation rights and property rights are infringed. Due to the temporary takeover of the government in the practice of legal disputes emerge in an endless stream, so qualitative temporary takeover authority, set up clear start standards clear, has great theoretical value and practical significance to improve the implementation of the program. This paper is based on the existing government temporary takeover as the research object, discussed. First temporary takeover and administrative punishment, comparative analysis of administrative expropriation and other specific administrative acts, the author thinks that the temporary takeover with administrative compulsory characteristics, strong system, real-time characteristics, temporary and transitional, is the administrative body in order to safeguard public interests, ensure continuity and the stability of public utilities in the private sector, due to objective reasons or subjective reasons can not be normal to provide public services in the public interest damage or threat When, in order to avoid or defuse public crisis to take immediate mandatory receiving and management behavior. Secondly, our country Public Utilities Franchise temporarily taken over as a kind of compulsory administrative measures, according to China's 2011 introduction of the "administrative mandatory law" should be established by law or administrative regulations, legal documents and the current relates to temporary takeover most of the department regulations, local government regulations and local regulations, these documents do not have legal authority over the establishment of a temporary, while the establishment of temporary takeover matters is not comprehensive enough. The condition is also temporarily taken over each place is not unified, starting in the standard "emergency" standard fuzzy, "scope of public interest" the definition is not clear, which will result in the administrative subject has discretion over, easy to abuse. And temporarily took over the administrative subject decided to temporarily connected The implementation of the program and the lack of corresponding provisions in the legislation, public participation and the degree of information disclosure is not high, resulting in a takeover and the interests of related people more susceptible to damage in the temporary takeover process. This paper argues that Public Utilities Franchise temporarily took over the first problem is the problem of the establishment of the because, in the current legislation of our country does not have a complete response to the utility of the laws or administrative regulations so that Public Utilities Franchise over the establishment of temporary lack of certain legitimacy, and to solve this problem, this is the formulation of a "public utility law" as soon as possible, in the legal aspects of Public Utilities Franchise the provisions of the temporary takeover system. Aiming at the conditions of broad public utilities franchise interim receiver, the solution procedure is simple and crude way is for these start mark The specific and detailed implementation of quasi and implementation procedures will weaken the discretion of the executive authorities, and strictly implement public participation and information disclosure, so as to really play the role of hearing, making the temporary takeover of public utilities franchised in China more and more perfect.

【学位授予单位】：上海师范大学
【学位级别】：硕士
【学位授予年份】：2017
【分类号】：D922.1

【相似文献】