信访制度法治化研究

发布时间：2018-05-29 08:06

本文选题：政府 + 公民　；参考：《苏州大学》2012年博士论文

【摘要】：如何直面信访并使之制度化、法治化是当今中国亟待研究和解决的诸多棘手问题之一。改革开放以来,特别是近年来,我国进入了剧烈的社会转型期。大量的社会冲突、矛盾、失序现象往往通过信访渠道反映出来。应该说,信访问题已经不仅仅是信访本身的问题而且也是社会全局问题的综合反映。与群众高涨的信访境象相比,我国现行的信访制度却显得相对滞后并弊端丛生。这主要表现在两个方面：一方面,当前的信访制度对信访困境的化解效果不佳,从而缺少效用合法性；另一方面,当前的信访制度与法治建设的大方略有所背离,从而缺少法理型合法性。特别是当人们为了提升制度效果而强化信访制度时,人们发现信访制度与法治建设的目标更加抵牾；反过来,当人们为了推进法治建设而弱化信访制度时,人们又发现信访制度的效能更加式微,由此形成信访制度上的悖论。为了解决信访制度悖论,出现了两种截然不同的声音：要么是废除,要么是强化。如何化解信访制度悖论,走出一条中国特色的信访制度发展道路。为此本文认为：对于信访制度,我们既不夸大,也不抹杀。在当前我国的司法体系还不够完善、相关改革还不到位的情况下,各种权力制衡和社会正义的维护还不尽如人意,信访制度作为一种补充性救济制度,对于疏导社会矛盾、维护群众利益来说有相对长期存在的现实合理性。同时,我们又不能因为看到信访制度对解决社会问题所具有的不可或缺的现实作用,而对信访制度有碍于法治建设予以选择性失明。本文认为废除论者主要犯了一种只关注程序法治而忽略了实体法治的错误,而强化论者则主要犯了一种只看到信访制度基于实体法治的治理功能,而忽略了当前信访制度客观上对程序法治的结构功能有破坏作用。质言之,信访制度是颇具中国特色的一项政治法律制度,它的兴衰存废对于中国的民主和法治建设有着重要意义。当前,我国只能以程序法治和实体法治相结合的法治主义来审视和彻底改造信访制度,这既是锻造有效、健康、科学的信访制度的基础,也是真正建构责任政府、法治政府与和谐社会的基础。有鉴于此,本文在借鉴先贤思想洞见、今人学理成果的基础上,结合我在政府部门长期分管信访工作的实践感悟,最终把分析研究的视角定格在当代中国社会现实背景,阐述信访制度法治化问题,以期对中国信访制度的历史定位和重新建构给出自己的看法。在具体内容上,本文按渐次深入的方式分为七个部分：第一部分,导论。这部分主要探讨研究的缘起、相关概念及相关理论,尤其是通过重点深度分析国内外研究现状,从而得出文章的可能创新之处与不足。第二部分,信访制度的历史演进与当代根源。通过历史分析法,对信访及信访制度的产生、发展、原因进行梳理,揭示了信访制度是中国传统文化与现实国情交错作用下形成的独特政治法律制度,是有中国特色的本土性制度。第三部分：信访制度的社会价值。在侧重于实体法的当代理解基础上,主要集中于“五个有利于”,即：有利于人民权利的保障；有利于人民民主的实现,有利于政府权力的制约；有利于党的群众路线的贯彻执行；有利于社会稳定。第四部分,信访制度的多维困境。现存信访制度极易造成信访人“信访不信法”,闲置正常的司法资源、破坏司法独立原则。极易造成基于权利本位的现代公民意识形成受到梗阻,“臣民思想”和“清官意识”抬头,还导致人民群众不断增长的信访需求和落后的信访解决问题能力之间的困境无法得到舒缓。与之同时,信访制度悖论也因此展现：当人们强化信访制度而实现信访功效时,信访制度的法理型合法性日益受到挑战；当人们弱化信访制度而彰显法治精神时,信访制度的效用合法性则日益受到挑战。第五部分,信访制度的法治化改造。本部分在借鉴域外相关经验基础上,主张走出信访制度的中国困境,必须对信访制度予以彻底的法治化改造。这种改造途径或管道有赖于两种方式：第一,信访制度作为辅助性的治理系统,必须依附主导性的治理系统即法治系统而存在和发展,这个法治系统在当代中国社会只能是以人大—司法制度为核心的法治治理系统,其关键任务仍然在于不断激活这个主导性的治理系统,如果缺失这个主导性法治系统,信访制度必将失去依附主体而无所适从；第二,信访制度作为辅助性的治理系统,必须通过彻底改造,而走上法治化。我们应当在借重信访制度时,应该以最大限度地减少信访制度对法治地位和权威的损害为原则。从长远来看,伴随着法治系统的逐渐成熟与完善,信访制度必将成为法治系统的一个并行不悖的有机组成部分,从而赋予信访制度新的模式和新的生命力。第六部分,信访制度法治化改造的环境吁求。信访制度法治化的生命力不在逻辑,而在于法治化的历史实践环境。为了促动信访制度的法治化改造,当代中国需要从如下四个方面构筑理想的法治环境：加强信访制度法治化的政治环境建设；加强信访制度的司法环境建设；加强公民的法治理性教育；加强地方政府法治建设。第七部分：结论。主要概括出本文的几点基本结论,并提出进一步思考的方向。
[Abstract]:Since the reform and opening up, especially in recent years, China has entered a period of severe social transformation. A large number of social conflicts, contradictions and disorder are often reflected through the channels of letters and visits. It should be said that the problem of letters and visits has been gone. It is only the problem of the letter and visit itself and the comprehensive reflection of the social problems. Compared with the high rise of the people, the current system of the letter and visit in China is relatively lagging and the malpractice is clustered. This is mainly manifested in two aspects: on the one hand, the current letter and visit system has a poor solution to the plight of the letter and visit, thus lack of utility. On the other hand, the current letter and visit system deviates from the rule of law construction, and it lacks legal legitimacy. In particular, when people strengthen the system effect, people find that the system of letter and visit is more contradictory to the goal of the construction of the rule of law; in the opposite, people weaken the letter in order to promote the construction of the rule of law. When visiting the system, people found that the effectiveness of the petition system was even more subtle, thus forming a paradox in the petition system.
In order to solve the paradox of the letter and visit system, there are two different voices: either abolishing or strengthening. How to dissolve the paradox of the system of letters and visits and go out of a path of development of the system of letters and visits with Chinese characteristics. For this reason, we think that we are neither exaggerating nor obliterating the system of letters and visits. When the reform is not in place, the balance of power and the maintenance of social justice are not satisfactory. As a supplementary relief system, the letter and visit system has a relatively long and realistic rationality to guide the social contradictions and maintain the interests of the masses. At the same time, we can not see the settlement of the society because of the system of letters and visits to solve the society. The problem has an indispensable practical function, and the petition system hinders the selective blindness of the rule of law.
The author believes that the abolist mainly committed a mistake that only pays attention to the rule of law but neglects the rule of law of the entity, while the forentist mainly makes a kind of function that only sees the system based on the rule of law of the entity, but neglects that the current letter and visit system has a destructive effect on the structure and function of the procedural rule of law. A political and legal system with Chinese characteristics is of great significance to the construction of democracy and the rule of law in China. At present, our country can only examine and thoroughly reform the system of letters and visits by the rule of law which combines procedural rule of law and substantive rule of law. This is the basis for forging an effective, healthy and scientific letter and visit system. In view of this, this article, on the basis of the insights of the thought of the sages and the achievements of the modern man, combined with my experience in the long-term division of the work of the government, finally sets the perspective of the analysis research into the realistic background of the Chinese society, and expounds the rule of law of the system of letters and visits. The purpose of this paper is to give my own views on the historical positioning and reconstruction of China's petition system.
On the specific content, this article is divided into seven parts in a gradual and in-depth way.
The first part, introduction. This part mainly discusses the origin of the research, the related concepts and related theories, especially through the analysis of the research status at home and abroad through the key depth, so as to get the possible innovation and deficiency of the article.
The second part, the historical evolution and the contemporary root of the letter and visit system. Through the historical analysis, this paper combs the emergence, development and reasons of the letters and visits and letters and visits, and reveals that the letter and visit system is a unique political and legal system formed by the interlacing of Chinese traditional culture and reality, and it is a local system with Chinese characteristics.
The third part: the social value of the letter and visit system, focusing on the contemporary understanding of the substantive law, mainly concentrating on the "five benefits", that is, the protection of the rights of the people, the realization of the people's democracy, the restriction of the government's power, the implementation of the party's group line and the social stability.
The fourth part, the multidimensional plight of the letter and visit system. The existing letter and visit system can easily cause the letter and visiting person "letter and visit unbelieving law", unused normal judicial resources and destroy the principle of judicial independence. It is easy to cause the formation of modern citizen consciousness based on the right standard to be obstructed, the "subject thought" and "consciousness of the official" rise, which also leads to the people constantly. The dilemma between the growing demand for letters and visits and the ability to solve problems in the letter and visit is not slow. At the same time, the paradox of the system of letters and visits shows that the legal legitimacy of the letter and visit system is increasingly challenged when people strengthen the letter and visit system and realize the efficacy of the petition system; when people weaken the letter and visit system and highlight the spirit of the rule of law, The validity of petition system is increasingly challenged.
The fifth part, the rule of law transformation of the letter and visit system. In this part, on the basis of the relevant experience of foreign countries, this part claims to go out of the plight of the letter and visit system in China. It must be completely reformed by the rule of law. This way or the pipeline depends on the two ways: first, the system of letters and visits as an auxiliary management system must be attached to the master. The management system of guidance is the existence and development of the rule of law system. The rule of law system in Contemporary Chinese society can only be the rule of law system at the core of the people's Congress and the judicial system. Its key task still lies in the continuous activation of the dominant governance system. If the system of the rule of law is missing, the system of letter and visit will lose its attachment. Second, as an auxiliary management system, the system of letters and visits must be reformed through thorough transformation and go to the rule of law. We should minimize the damage to the status and authority of the rule of law in the letter and visit system to the maximum extent. Good, petition system will become an organic part of the rule of law system, thus giving the petition system new mode and new vitality.
In the sixth part, the environment of the rule of law transformation of the letter and visit system is called for. The vitality of the rule of law of the letter and visit system is not logical, but it lies in the historical practice environment of the rule of law. In order to promote the rule of law transformation of the petition system, the contemporary China needs to build an ideal rule of law from the following four aspects: strengthening the political environment of the rule of law of the letter and visit system Set up, strengthen the judicial environment construction of the petition system, strengthen the rational education of citizens' rule of law, and strengthen the rule of law construction of local governments.
The seventh part: conclusion. The main conclusions of this article are summarized, and the direction of further thinking is put forward.
【学位授予单位】：苏州大学
【学位级别】：博士
【学位授予年份】：2012
【分类号】：D632.8

【参考文献】