行政规章自我评价法律机制

发布时间：2019-07-06 06:02

【摘要】：行政评价制度在发达国家政府改革和优化行政管理的过程中，发挥着重大作用。20世纪70年代开始，西方国家普遍推行行政评价制度，实现绩效管理。在政府绩效管理实践的基础上，又将行政评价进一步规范化，逐步以法律、行政命令等形式确立了行政评价法律制度，并已经形成较为完善的理论方法体系与操作制度。在西方评价理论与实践的影响下，我国开始引入对行政评价的理论研究，行政评价建立在以行政机关自我预防、自我纠错、自我反思为主要内容的行政自制理论基础之上，在一些地方已经进行探索性实践，目前已取得了重要的共识，积累了宝贵的经验。但总体来看，基于理念、技术、体制等方面的制约因素，实践工作仍处于起步阶断，这为本文深入研究“行政评价”提供了较大的空间。同时，作为基础的行政自制虽然已经拥有了相对成熟的理论体系乃至实践机制，但到目前为止，对其实践机制的研究，大多还停留在观念层面的制度设计上，而某种制度的最终实施必须通过一定的“载体”来实现，这种“载体”就是本文所要探讨的内容，即行政自制的法律渊源——行政规章。行政规章的出现是基于各种社会需要的综合作用，在现代法律体系中，行政规章占有重要地位。在构建法治政府的进程中，行政规章质量的优劣直接影响着政府依法行政的水平高低。行政规章作为行政立法的主要形式之一，它既对社会发展有着不同寻常的推动作用，也对私人的权利义务关系有着重大影响。行政规章基于其固有的性质、特点，以及与其他法律渊源的关系而成为行政自制中最重要的一种法律渊源，并将通过对行政自制维度的剖析以及行政裁量权内控制度的实证分析来证明这一结论。因此，构建行政机关对现行行政规章的自我评价机制，不仅达到规范行政权的目的，同时可以弥补我国既有的行政内部监督机制过于僵化、被动，缺乏系统科学的指导思想的缺陷，为在不同领域实现行政自我控权建立坚实的基础。行政规章自我评价，是指行政机关通过制定和实施一系列制度、程序和方法，对行政规章进行事前防范，事中控制，事后监督和纠正的动态过程和机制，也就是根据设立、实施和运行结果对行政规章开展的调查、测试、分析和评价等系统性的活动，即行政规章自我评价应当是行政机关法治建设体系中一个重要的系统性活动，通过“预测——评价、反馈——再评价”的过程对于行政规章的制定的健全性和执行的有效性作出合理判断，进一步发现行政规章存在的缺陷并有针对性的克服，及时堵塞管理漏洞，防范各种风险，持续促进行政规章的有效实施。虽然我国一些地方对行政规章已经进行了不同程度的评价，，在实践上取得了一定的成绩。但是其评价研究并没有形成完整的体系，我国规章评价工作中亦存在诸多不足，如评价理论不成熟、地方政府利益驱动、公众参与度不够、信息公开程度不高等，这些问题都严重影响了行政规章评价工作的效率和质量。行政规章自我评价应当包括三个层面：一是行政规章的事前评估；二是行政规章实施过程中的事中评价；三是行政规章实施一段时间后的事后评价。本文主要是将行政规章的效果和效益评价作为研究对象，对已经实施的行政规章的实施情况进行及时跟踪、全面调查，可以具体考察其立法目的是否达到，深入分析相关规定是否适合实际情况，最终得出客观公正的评价结论。这可以有效检验政府立法质量，衡量行政规章设计的实际效应，及时查找存在的问题，为进一步改进政府立法工作提供重要依据。“自我评价”并不是指行政机关完全利用自身的资源进行评价，实际上，组织很少能够完全依靠自己去识别自身的弱项。在自我评价的过程中，行政机关可以利用外部资源提供的信息，这种信息通常比检查可行得多，而且只要对信息进行收集、分析和解释，就可以保留这些资源。本文的研究目的就是把对行政规章的自我评价作为一种重要的管理和检测工具，提高行政效率。本文从行政规章自我评价机制的理论内容与制度构建两个方面进行阐述。一部行政规章的质量高不高，最终是要看它在实践中的效果怎么样。为了解决我国行政规章评价工作中存在的问题，激发行政机关对行政规章进行评价的动力，本文从以下几个方面为建构适合我国的行政规章自我评价机制设计路径，提出建设性的对策和建议：第一是探索构建行政规章自我评价机制的理论依据；第二是构建行政规章自我评价主体，完善评价工作中公民参与制度；第三是建立行政规章自我评价的指标体系，为自我评价机制提供重要的评价标准；第四是健全对规章评价结果的运用机制，为保障自我评价实现根本目的；第五是建立自我评价的监督和问责制度，为规章自我评价提供持久的动力。总之，行政规章自我评价工作是一项具有开创性的工作，是一项严肃且技术性很强的工作，不仅能够促使行政机关自觉完善立法，提高行政规章适用的针对性和可操作性，并有效地维护和实现国家的法制统一。因此，对于构建行政规章自我评价法律机制这一探索中的机制而言，关键是要允许多样性的地方探索和实践，在此基础上，更好的并适宜于向全国推广的行政规章自我评价法律机制才有可能被最终“筛选”出来。本文结合我国各地近几年来开展立法及立法后评估工作的实践，对行政规章自我评价制度的基本理论和制度构建进行阐述分析，以期对我国建立和完善行政评价制度有所裨益，使得行政自制与他制相结合，更好地贯彻落实党的“十八大”报告中提出的进一步推进依法行政新的更高的要求。
[Abstract]:The administrative evaluation system plays a very important role in the process of the reform and optimization of the administration of the developed countries. In the 1970s, the western countries generally carried out the administrative evaluation system and realized the performance management. On the basis of the practice of government performance management, the administrative evaluation is further normalized, the legal system of administrative evaluation is gradually established in the form of law, executive order and so on, and a more perfect theoretical method and operation system have been formed. Under the influence of the western evaluation theory and practice, China began to introduce the theoretical research on the administrative evaluation, and the administrative evaluation is based on the administrative self-made theory of self-prevention, self-correction and self-reflection of the administrative organ, and the exploratory practice has been carried out in some places, Important consensus has been achieved and valuable experience has been accumulated. However, in the whole, the practice work is still at the beginning stage, which provides a large space for the in-depth study of the "administrative evaluation". At the same time, while the basic administrative self-control has already possessed a relatively mature theoretical system and even a practical mechanism, so far, the research on its practice mechanism is still at the conceptual level of the system design. The final implementation of some kind of system must be realized through a certain "carrier". This "carrier" is the content to be discussed in this paper, that is, the legal origin of administration and the administrative regulations. The emergence of administrative regulations is based on the comprehensive function of various social needs, and in the modern legal system, the administrative regulations occupy an important place In the process of building the government of the rule of law, the quality of the administrative regulations directly affects the government's high level of administration by law As one of the main forms of the administrative legislation, the administrative regulations have an unusual driving effect on the social development, but also have a great shadow on the relationship between the rights and obligations of the private In response, the administrative regulations have become one of the most important legal sources in the self-made self-control based on the nature, characteristics, and the relationship with other legal sources, and it will be proved by the analysis of the self-made dimension and the empirical analysis of the internal control system of the administrative discretion. Therefore, it is necessary to construct the self-evaluation mechanism of the administrative organ to the current administrative regulations, not only to the purpose of regulating the administrative power, but also to make up the shortage of the guiding ideology of the existing administrative supervision mechanism in China, which is too rigid, passive and lacking in system science. The establishment of a solid foundation for the realization of the right to self-control in different areas The self-evaluation of the administrative rules means the dynamic process and mechanism of the administrative organ through the development and implementation of a series of systems, procedures and methods, the prior prevention of the administrative regulations, the control of the affairs, the post-monitoring and the correction, and the root The system of investigation, testing, analysis and evaluation of administrative regulations, that is, the self-evaluation of administrative rules, should be an important system in the rule of law construction system of the administrative organ, according to the establishment, implementation and operation results. Sexual activity, through the process of the "Prediction _ Evaluation, feedback _ re-evaluation", make a reasonable judgment on the development of the administrative regulations and the effectiveness of the implementation, further find the defects in the administrative regulations and have the pertinence, timely block the management loophole, prevent various risks and continuously promote the administrative regulations. In some parts of our country, there have been a certain degree of evaluation on the administrative regulations, and a certain degree has been achieved. However, the evaluation research has not formed a complete system, and there are many deficiencies in the evaluation of China's regulations, such as the lack of the theory of evaluation, the driving of local government's interests, the insufficient public participation and the degree of information disclosure. These problems have seriously affected the efficiency of the evaluation of the administrative regulations. The self-evaluation of the administrative regulations should include three levels: one is the prior assessment of the administrative regulations; the other is the evaluation of the work in the implementation of the administrative regulations; the third is the implementation of the administrative regulations for a period of time In this paper, the effect and benefit evaluation of administrative regulations are used as the object of the study, and the implementation of the administrative regulations has been tracked and investigated in a timely manner. In that case of the actual situation, the final result is objective and fair. It can effectively check the quality of the government's legislation, measure the practical effect of the design of the administrative regulations, and find the existing problems in a timely manner, so as to further improve the government's legislative work. The "self-evaluation" does not mean that the administrative organ fully uses its own resources for evaluation. In fact, the organization is rarely able to rely entirely on its own identification In the process of self-evaluation, the administrative organ can make use of the information provided by the external resources, which is usually much more feasible than the inspection, and the information can be collected, analyzed and interpreted as long as the information is collected, analyzed and explained. The purpose of this paper is to use the self-evaluation of administrative regulations as an important management and detection tool. The high administrative efficiency. This article is based on the theoretical content and the system of the self-evaluation mechanism of the administrative regulations. The quality of an administrative regulation is not high, and the end is to see it in practice In order to solve the problems existing in the evaluation of the administrative regulations of our country and to stimulate the power of the administrative organs to evaluate the administrative regulations, this paper, from the following aspects, is to construct the design path of the self-evaluation mechanism for the administrative regulations of our country, and put forward the construction. The first is to explore the theoretical basis for constructing the self-evaluation mechanism of the administrative regulations, and the second is to build the self-evaluation subject of the administrative regulations, to improve the citizen participation system in the evaluation work, and the third is to set up the index system of the self-evaluation of the administrative rules and provide the self-evaluation mechanism. The fourth is to improve the application mechanism of the results of the evaluation of the rules, and to realize the fundamental purpose of the self-evaluation; the fifth is to establish the supervision and accountability of self-evaluation and to self-evaluate the regulations To provide a lasting power. In general, the self-evaluation of the administrative regulations is a pioneering work, a serious and technical work, not only can the administrative organs improve the legislation consciously, and improve the application of the administrative regulations targeted and operable and effectively maintained and To achieve the unity of the country's rule of law, the key to the mechanism of the exploration of the self-evaluation of the legal mechanism of the administrative regulation is to explore the place where the diversity is to be allowed And practice, on this basis, it is better and suitable for the self-evaluation of the legal mechanism of the administrative regulations to be extended to the whole country. " out. In this paper, the basic theory and system construction of the self-evaluation system of the administrative regulations are described in the light of the practice of carrying out the legislation and the post-legislative evaluation in recent years in our country, with a view to the benefit of the establishment and perfection of the administrative evaluation system in our country, which makes the line The combination of self-made and other system, and better follow-up of the party's "18-year-old" report, further promote the law
【学位授予单位】：吉林大学
【学位级别】：博士
【学位授予年份】：2014
【分类号】：D922.1

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