行政程序控权研究
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摘要
行政权力自身的特性决定了其有被滥用的可能，如果不能得到有效的制约，则会出现行政权力的失控，从而给公民和社会组织的合法权益带来极大的危害，为了确保行政权力公正、合理的运行，必须对其进行有效的制约。传统的控权模式着眼于行政行为的结果，强调通过限制行政权力的范围来实现控权的目的，随着行政国家的出现，传统模式已不能很好地适应现代社会事务管理的需要。行政程序控权着眼于行政权力行为的过程，强调通过行政程序的合理设计及运行来实现行政权力的规范运行。相较于传统控权模式，行政程序控权有利于弥补传统控权模式的局限，是规范行政权力运行的一种有效模式。
在我国，要建设社会主义法治国家，促进市场经济的发展，就必须加强程序控权。建国以来，我国行政程序控权取得了一定的成就，但由于传统经济、政治体制和旧观念的影响，行政程序控权研究在我国仍然是一个比较薄弱的领域，行政程序建设无论从观念、理论方面还是在制度、实务方面都存在着不少问题，这些问题主要表现在：行政程序控权理念的缺失，行政程序立法相对滞后，行政程序制度建设不完善，行政程序监督乏力；这些问题严重影响了行政程序控权功能的发挥。因此，必须加强和完善我国行政程序控权：树立程序控权理念，促进行政程序立法，健全行政程序制度，完善行政程序监督。
本文结合行政程序控权产生的时代背景，运用国内外行政程序控权的相关理论，阐述了行政程序控权的相关概念，分析了我国行政程序控权的现状，提出了完善和加强我国行政程序控权的对策。旨在使我国行政程序控权的内容更具可操作性，为程序控权的完善提供可资借鉴的理论参考。
The characteristics of administrative power itself determine possible abuse of it. In order to secure the just and proper operation of administrative power, an effective restriction should be applied on it, since uncontrolled administrative power, which is resulted from ineffective restriction on it, will cause great harm to the legal rights and interests of civics and social organizations. Traditional power control mode, which pays more attention to the results of administrative behavior, emphasizes that restricting the scope of administrative power can control the administrative power. With the appearance of administrative nation, the traditional power control mode have not been fit for the need of managing modern social affairs any longer. The administrative procedure power control mode, which pays more attention to the procedure of administrative power, emphasizes that proper design and operation of administrative procedure can realize normative operation of administrative power. Compared with the traditional power control mode, the administrative procedure power control mode is an effective mode to normalize the operation of administrative power, since it can compensate the shortages of traditional power control mode.
In order to build a socialist country under the rule of law and boost the development of market economy, the power control by administrative procedure must be strengthened in our country. Since the founding of People's Republic of China in 1949, we have made achievements in the power control by administrative procedure to certain degree. However, it is still a relatively weak field in our nation due to the influence of traditional economy, political system and old concepts. It has many problems either from the angle of ideas and theories or from the angle of regulations and practice. These problems are mainly manifested by the lack of concept of the power control by administrative procedure, delayed administrative procedure law-making, imperfect construction of administrative procedure, weak supervising power of administrative procedure. They badly affect the exertion of the power control by administrative procedure function, therefore, we must strengthen and consummate our power control by administrative procedure, that is, we must build up the concept of the power control by administrative procedure , boost administrative procedure law-making, improve administrative procedure regulations and perfect the supervision of administrative procedure.
As viewed from the development of the power control by administrative procedure, the related conceptions of the power control by administrative procedure was expounded, the actualities of the power control by administrative procedure was analyzed, and the measures for consummating and enhancing the power control of administrative procedure of China was put forward in this paper with the related theories of domestic and foreign the power control by administrative procedure in order to get the contents of the power control by administrative procedure more operable and to provide the suggestion for consummating the power control by administrative procedure.
在我国，要建设社会主义法治国家，促进市场经济的发展，就必须加强程序控权。建国以来，我国行政程序控权取得了一定的成就，但由于传统经济、政治体制和旧观念的影响，行政程序控权研究在我国仍然是一个比较薄弱的领域，行政程序建设无论从观念、理论方面还是在制度、实务方面都存在着不少问题，这些问题主要表现在：行政程序控权理念的缺失，行政程序立法相对滞后，行政程序制度建设不完善，行政程序监督乏力；这些问题严重影响了行政程序控权功能的发挥。因此，必须加强和完善我国行政程序控权：树立程序控权理念，促进行政程序立法，健全行政程序制度，完善行政程序监督。
本文结合行政程序控权产生的时代背景，运用国内外行政程序控权的相关理论，阐述了行政程序控权的相关概念，分析了我国行政程序控权的现状，提出了完善和加强我国行政程序控权的对策。旨在使我国行政程序控权的内容更具可操作性，为程序控权的完善提供可资借鉴的理论参考。
The characteristics of administrative power itself determine possible abuse of it. In order to secure the just and proper operation of administrative power, an effective restriction should be applied on it, since uncontrolled administrative power, which is resulted from ineffective restriction on it, will cause great harm to the legal rights and interests of civics and social organizations. Traditional power control mode, which pays more attention to the results of administrative behavior, emphasizes that restricting the scope of administrative power can control the administrative power. With the appearance of administrative nation, the traditional power control mode have not been fit for the need of managing modern social affairs any longer. The administrative procedure power control mode, which pays more attention to the procedure of administrative power, emphasizes that proper design and operation of administrative procedure can realize normative operation of administrative power. Compared with the traditional power control mode, the administrative procedure power control mode is an effective mode to normalize the operation of administrative power, since it can compensate the shortages of traditional power control mode.
In order to build a socialist country under the rule of law and boost the development of market economy, the power control by administrative procedure must be strengthened in our country. Since the founding of People's Republic of China in 1949, we have made achievements in the power control by administrative procedure to certain degree. However, it is still a relatively weak field in our nation due to the influence of traditional economy, political system and old concepts. It has many problems either from the angle of ideas and theories or from the angle of regulations and practice. These problems are mainly manifested by the lack of concept of the power control by administrative procedure, delayed administrative procedure law-making, imperfect construction of administrative procedure, weak supervising power of administrative procedure. They badly affect the exertion of the power control by administrative procedure function, therefore, we must strengthen and consummate our power control by administrative procedure, that is, we must build up the concept of the power control by administrative procedure , boost administrative procedure law-making, improve administrative procedure regulations and perfect the supervision of administrative procedure.
As viewed from the development of the power control by administrative procedure, the related conceptions of the power control by administrative procedure was expounded, the actualities of the power control by administrative procedure was analyzed, and the measures for consummating and enhancing the power control of administrative procedure of China was put forward in this paper with the related theories of domestic and foreign the power control by administrative procedure in order to get the contents of the power control by administrative procedure more operable and to provide the suggestion for consummating the power control by administrative procedure.
引文
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[2] 姜明安．行政法与行政诉讼法．北京：中国卓越出版公司，1990，47
[3] 阿德．规范行政行为．中国法学，1994，(1)：71
[4] 江泽民．全面建设小康社会，开创中国特色社会主义事业新局面——在中国共产党第十六次全国代表大会上的报告．http://202.84.17.28/csnews/20021118/300508.asp, 2002—11—18
[5] 袁曙宏．建构法治政府——全面推进依法行政实施纲要读本．北京：法律出版社，2004，207
[6] 刘鹤．加快转变政府职能，完善行政管理体制．见：中共中共中央关于完善社会主义市场经济体制若干问题的决定辅导读本．北京：人民出版社，2003，444
[7] Pitman B. Potter. The Administrative Litigation Law of the PRC: Judicial Review and Bureaucratic Reform. in P. B. Potter ed., Domestic Law Reform in Post-Mao China. 1994.M.E.Sharp.Inc. p.273, p.274～278
[8] 陈端洪．法律程序价值观．中外法学．1997，(6)：50
[9] John Rawls. A Theory of Justice. 1972. Oxford: Clarendon Press. pp.54～60
[10] Robert M. Unger. Law in Modem Society. 1976. New York: Free Press. p.194
[11] Harold J. Berman & William R. Greiner, The Nature and Function of Law, 1980,The Foundation Press ,pp. 28～30
[12] Lon L. Fuller, The Morality of Law, 1973, revised ed., New Haven :Yale University Press, p.97, p.157
[13] Michael D. Bayles. Procedural Justice-Allocating to Individuals. 1990. Boston: Kluwer Academic Publishers. Acknowledgment. p. 131
[14] Robert S. Summers.Evaluating and Improving Legal Process-A Plea for Process value. 1974.60 Comer Law Review 1,p.4
[15] (英)威廉·韦德．行政法．楚建译．北京：中国大百科全书出版社，1997，94
[16] (美)欧内斯特·盖尔霍恩，罗纳德·M利文著．行政法和行政程序概要．黄列译．北京：中国社会科学出版社，1996，2
[17] Henry M. Hart & Albert M. Sacks, The Legal Process :Basic Problems in the Making and Application of Law.1958.Introduction.Cambridge.reproduction from typewritten copy. p.6
[18] (美)伯纳德·施瓦茨著．行政法．徐炳译．北京：群众出版社，1986，12
[19] 陈丽芳．控制行政自由裁量权合理运行的主要途径探寻．江南社会学院学报．2004(4)：38
[20] 吴弢．行政自由裁量权的程序控制．黑龙江政法管理干部学院报．2005(3)：33
[21] 欧阳波，张星．行政权的程序控制．中国律师．2004(11)：65
[22] 吴秀玲．现代行政程序制度对行政控权的意义．行政与法．2001(6)：41
[23] 王勇．行政程序法治化的意义．中国纪检监察报．2004—4—14
[24] 张学慧．浅析我国行政程序控权的现实缺失．理论探索．2004(4)：106
[25] Biswas on Encyclopedic Law Dictionary. 1979. p.592
[26] 辞源编写组：辞源(第3卷)．北京：商务印书馆，1979，2307
[27] 辞海编辑组：辞海(下册)．上海：上海辞书出版社，1979，4014
[28] K.C.Davis. Administrative Law Treatise, 1978,Vo. 11.San Diego: K.C.Davis Pub.Co., pp. 1～2
[29] (日)盐野宏著．行政法．杨建顺译．北京：法律出版社，1999，189
[30] (台)罗传贤著．行政程序法基础理论．台北：五南图书出版公司，1993，43
[31] 江必新，周卫平著．行政程序法概论．北京：北京师范学院出版社，1991，2
[32] 罗豪才主编．行政法学．北京：北京大学出版社，1996，294，106
[33] 应松年主编．依法行政读本．北京：人民出版社，2001，245，267～273
[34] 何会源．论孙中山先生关于中央政治制度设计．见：民国法学论文精粹(宪政法律篇)．北京：法律出版社，2002，89
[35] 张国庆．行政管理学概论．北京：北京大学出版社，2000，103
[36] 杨海坤，何薇．行政法学界关于“行政”和“行政权”的讨论．湘潭工学院学报(社会科学版)．2001，3(3)：29～31
[37] 应松年，薛刚凌．论行政权．政法论坛．2001(4)：55
[38] 王学辉．市场经济条件下行政法学的新视野．现代法学．2000，22(6)：111
[39] 郭道晖．法治行政与行政权的发展．现代法学．1999(1)：11～13
[40] (美)潘恩．潘恩选集．马清槐等译．北京：商务印书馆，1981，10
[41] (法)卢梭．社会契约论．何兆武译．北京：商务印书馆，1980，76
[42] 转引自杨光斌主编．政治学导论．北京：中国人民大学出版社，2000，213
[43] 辞海编辑组．辞海．上海：上海辞书出版社，1980，703
[44] (美)德鲁克．新现实——走向二十一世纪．刘靖华等译．北京：中国经济出版社，1993，56
[45] 笑侠．论新一代行政法治．外国法述评．1996(2)：63
[46] 杨寅．中国行政程序法治化．北京：中国政法大学出版社，2001，101
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