基于国内外相关监管制度比较视角的土地督察体制创新研究

发布时间：2018-03-18 10:43

本文选题：土地督察　切入点：监管制度　出处：《中国地质大学（北京）》2013年博士论文　论文类型：学位论文

【摘要】：建立国家土地督察制度，是我国实行最严格的土地管理制度作出的一项重大决策。本文在对俄罗斯国家土地督察等6个国家和我国行政监察等9个行业相关监管制度比较借鉴基础上，运用整体主义的新制度经济学分析框架，从规范和实证两个层面研究了我国土地督察的理论基础、权源性质、体制模式、职责职权、运行机制和资源保障，为我国土地督察体制改革创新提供了研究借鉴。监管机构构建、新公共管理和土地宏观调控三大理论是我国土地督察体制创新研究的主要理论基础。同时，运用利益理论和政府责任理论探索我国土地督察权源，认为，土地督察权是一种中央对地方的行政监督权，土地督察制度根源于国家土地权力配置格局以及相互的关系，土地督察权是衡平中央与地方利益、控制地方政府自由裁量权、监控地方政府落实土地管理责任的重要制度工具。对我国现行土地督察法定职责评价，认为国家土地督察体制总体特征表现为大区制半独立式三级土地督察体制架构。这种模式比较切合现行的国家宪政体制、资源国情和土地管理体制。通过与国内外相关监管体制比较分析，可在监督对象、领导体制、架构设置模式、内部领导、职能职权方面为我国土地督察体制创新提供借鉴。通过对土地督察范围调整、中央与地方土地管理分权调整和大部制推进的改革情景设定，我国土地督察体制存在着向职能强化型、分权式或职能调整型创新模式转变的路径选择模式。相应的，土地督察职责将更加注重“合理性”督察，注重与地方政府合作，并把维护公民正当权利作为重要职责；土地督察职权将重点强化和增加检查权、质询权、纠正权、行政执法权、建议权、裁决权、评价权、参与权、公诉权等。 “协同”是我国现行土地督察体制运行的核心理念，运用协同理论可为我国土地督察运行设计出政治-行政、职能-结构、决策-执行-监督、府际、部际和社会协同机制运行模式。通过对现行土地督察运行评价，认为目前我国已经形成了以例行督察、审核督察和专项督察为核心业务，在线土地督察、调查研究和形势观测分析为基础支撑土地督察的业务体系，土地督察协同机制基本形成体系；但土地督察民主化不足成为主要问题，完善公众参与机制、建立土地督察影响评估程序和实施土地督察绩效管理将成为加强和创新的重要方向。根据合法、独立、公正和效率构建原则，强化我国土地督察政治资源、人力资源、资财资源和信息资源保障，，重点是推进土地督察法制建设、土地督察人才“数量”及质量建设、加大中央财政预算投入、推进土地督察信息化工程和信息资料集成化工程。
[Abstract]:The establishment of a national system of land inspectors, It is an important decision to implement the strictest land management system in our country. Based on the comparison of the relevant supervision systems of 6 countries such as Russia's state land inspectors and 9 industries such as administrative supervision in our country, Using the new institutional economics analysis frame of holism, this paper studies the theoretical basis, the nature of the power source, the system model, the duty and authority, the operating mechanism and the resource guarantee of the land inspector in China from the two aspects of norm and demonstration. It provides a reference for the reform and innovation of land supervision system in China. The three theories of new public management and land macro-control are the main theoretical basis of the innovation of land supervision system in China. At the same time, using the theory of interest and the theory of government responsibility, the author explores the source of the power of land inspector in our country. The land supervision power is a kind of administrative supervision power of the central government to the local government. The land supervision system is rooted in the distribution pattern of the national land power and the relationship between them. The land supervision power is to balance the interests of the central government and the local government and control the discretion of the local government. Monitoring local governments to implement land management responsibilities important institutional tools. Based on the evaluation of the current statutory duties of land inspectors in our country, it is considered that the overall characteristics of the national land supervision system are as follows: large area system, semi-independent three-level land supervision system, and this model is more suitable for the current national constitutional system. Through comparative analysis with domestic and foreign related regulatory systems, we can set up models of supervision objects, leadership system, structure, internal leadership, The functions and powers of the land supervision system for our country to provide reference for innovation. Through the scope of land supervision adjustment, central and local land management decentralization adjustment and promotion of the reform scenario, The land supervision system of our country has the path choice mode which changes to the function strengthening type, the decentralization type or the function adjustment type innovation pattern. Accordingly, the land inspector duty will pay more attention to the "rationality" inspector, pay attention to the cooperation with the local government. The power of land inspector will focus on strengthening and increasing the rights of inspection, inquiry, correction, administrative law enforcement, suggestion, adjudication, evaluation, participation, public prosecution and so on. "Synergy" is the core idea of the operation of the current land supervision system in China. By using the synergetic theory, we can design the political-administrative, function-structure, decision-making, execution-supervision and intergovernmentalness for the operation of the land inspector in our country. The operational model of inter-ministerial and social cooperative mechanism. Through the evaluation of the current operation of land inspectors, it is concluded that China has formed an online land inspector with routine supervision, audit inspector and special inspector as the core business. On the basis of investigation and analysis of situation observation and analysis, the operational system of land inspector is supported, and the cooperative mechanism of land inspector is basically formed, but the lack of democratization of land inspector becomes the main problem, and the mechanism of public participation is improved. The establishment of land inspector impact assessment process and the implementation of land inspector performance management will become an important direction of strengthening and innovation. In accordance with the principles of legality, independence, impartiality and efficiency, we should strengthen the guarantee of political resources, human resources, assets and financial resources and information resources of land inspectors in our country, with emphasis on promoting the legal construction of land inspectors. The quantity and quality of land inspectors should be built, the central financial budget should be increased, and the information engineering of land inspectors and the integration of information and materials should be promoted.
【学位授予单位】：中国地质大学（北京）
【学位级别】：博士
【学位授予年份】：2013
【分类号】：F301.1

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