权力清单制度存在的问题及法律规制

发布时间：2018-04-25 09:44

本文选题：权力清单 + 存在问题　；参考：《山东大学》2017年硕士论文

【摘要】：随着权力清单制度的实践不断展开,诸多问题暴露出来,阻碍了权力清单作用的发挥。究其原因,权力清单制度自被正式提出就仅仅由政策文件来规范,缺少法律规制,因此,无论是其编制过程还是其作用的界定,都没有统一的标准来规范。为了使权力清单制度发挥出制度设计时的初衷价值,必须对其进行明确的定位,并根据这一定位对其运行进行法律规制。第一部分介绍权力清单制度在实践中存在的问题。首先,通过行政诉讼案件展示出权力清单制度的第一个问题,即已陆续公开的权力清单在诸多司法判决中一直处于被忽视的状态。其次,通过具体的案件,反观出权力清单的内容与现有的行政法律规范之间存在的"不一致",这种"不一致"体现在权力清单没有展示出某些具体的行政职权,进而,提出第二个问题,即权力清单能否限缩现有行政法律规范中规定的行政权力。最后,从权力清单对其编制依据中行政权力行使主体的改动中提出第三个问题,即权力清单对行政法律规范中行政权力的改动能否产生效力。第二部分着重分析了问题产生的根本原因。权力清单制度之所以会在司法实践中暴露出这些问题,最根本的原因就是没有明确的定位。权力清单制度的正式展开是在政策文件的推动下进行的,没有任何法律性文件对权力清单制度进行明确的定位和承认。同时,启动和指导权力清单制度的部分政策性文件本身就存在欠缺法治思维的问题,经不起仔细推敲,有不经法定程序就否定现有行政法律规范效力的严重问题。第三部分具体介绍了权力清单制度的性质。既然权力清单制度存在问题的重要原因是法律定位空白,那对权力清单进行法律性质的判断尤为重要。第三部分首先介绍了关于权力清单性质的三种观点,分别为行政规范性文件、行政自治规范和信息公开说,然后对各种学说进行了分析并最终将权力清单定性为行政规范性文件,最后从三个方面阐述了这一定性的理由,一是权力清单内容具有极强的外部性且制定主体与规范性文件相契合,二是定性为规范性文件,权力清单制度的运行易受规范,三是定性为规范性文件,权力清单制度的作用可以扩大化。第四部分对权力清单的完善途径提出了建议。主要从将权力清单定性为行政规范性文件、严格依照上位行政法律规范的规定编制权力清单、权力清单可以适当清理行政职权、明确权力清单流程图的定位、加快法律法规规章修改废止进程、保持上下级行政机关权力清单的协调、保持权力清单动态管理机制、社会力量的监督、司法的监督、加强对权力清单编制人员的培训十个方面进行了阐述。从法律上将权力清单明确为行政规范性文件是基础与前提,这样一来,权力清单制度运行过程中的诸多问题就会相应地得到回应和解决方案。其他的完善方式的根本目的和直接效果也都是使权力清单能够遵循在行政法律规范体系中的定位,在法治化的轨道上运行,更好地发挥作用。综上,要使权力清单制度的运行规范化,就必须对其进行合理的定位和严格的法律规制。
[Abstract]:With the continuous development of the practice of the power list system, many problems have been exposed, which hinders the play of the power list. The reason is that the power list system has been formally proposed to be standardized by policy documents and lack of legal regulation. Therefore, there are no unified standards to standardize the formulation process and the definition of its role. In order to make the system of power list give full play to the original value of the system design, we must make a clear orientation to it and regulate its operation according to this certain position. The first part introduces the problems existing in the practice of the power list system. First, the first question of the system of power list is displayed through the administrative litigation cases, that is, the first problem of the system of power list is presented. The list of power has been in a state of neglect in many judicial decisions. Secondly, the "inconsistency" between the contents of the power list and the existing administrative legal norms is reflected through specific cases. This "inconsistency" is embodied in the list of powers that do not show certain specific administrative functions and powers, and then, The two question is whether the list of power can limit the administrative power stipulated in the existing administrative legal norms. Finally, third questions are put forward from the changes in the subject of the exercise of administrative power in the basis of the list of power. That is, whether the list of powers will have effect on the modification of administrative power in the administrative legal norms. The second part focuses on the analysis of the question. The fundamental reason why the power list system exposes these problems in judicial practice is that there is no clear orientation. The formal expansion of the power list system is carried out under the impetus of the policy documents, and there is no clear orientation and recognition of the power list system without any legal documents. In the third part, the nature of the power list system is introduced. The third part introduces the nature of the system of power list. Since the list system of power is important, it is important that there is an important problem in the list system of power. The reason is that the legal position is blank, and it is particularly important to judge the legal nature of the list of powers. The third part first introduces three views on the nature of the list of powers, which are administrative normative documents, administrative autonomy and information disclosure, and then analyze various doctrines and ultimately determine the list of power as administrative rules. In the end, the paper expounds the reasons for the qualitative analysis in three aspects. One is that the content of the power list is highly externality, the subject and the normative document are fit, the two is the normative document, the operation of the power list system is easily regulated, the three is the normative document, and the function of the power list system can be expanded. The fourth part puts forward some suggestions on the way to perfect the list of power. It mainly defines the list of power from the list of the power list, strictly according to the regulations of the upper administrative law. The list of power can properly clean up the administrative power, make clear the position of the flow chart of the power list and quicken the abolition of the rules and regulations of the laws and regulations. The process, maintaining the coordination of the power list of the upper and lower administrative organs, maintaining the dynamic management mechanism of the power list, the supervision of the social forces, the supervision of the judicature, and strengthening the ten aspects of the training of the staffs of the power list. Many problems in the process of single system operation will be correspondingly responded and solved. The fundamental purpose and direct effect of other perfect ways are to make the list of power follow the position in the administrative legal norm system, run on the track of the rule of law, play a better role. In order to normalizing norms, it is necessary to make reasonable positioning and strict legal regulation.

【学位授予单位】：山东大学
【学位级别】：硕士
【学位授予年份】：2017
【分类号】：D922.1

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