摘要
法律援助是指政府设立的法律援助机构组织法律服务机构及法律服务人员，为经济困难或特殊案件当事人提供法律服务并减免法律服务费的一项法律保障制度。政府责任是现代法律援助理论体系的基石。政府责任的从无到有、从小到大，反映了法律援助制度不断完善、不断发展的过程。时至今日，政府承担法律援助责任的力度已成为衡量一个国家法制建设和社会文明的标志。我国开展法律援助工作已将近十年，但是实践中我国政府责任的落实还存在诸多障碍，理论上对政府责任的研究还不够深入、缺乏系统性。本文试图系统地对政府责任作全方位的剖析，力求廓清政府责任的内涵和外延，进一步明确政府在建立法律援助制度中的地位和作用。在此基础上，结合实际，分析我国政府责任在落实过程中存在的障碍，提出解决问题的思路和建议。
本文共由四部分组成。第一部分是法律援助政府责任概述。法律援助政府责任指政府负有的建立法律援助制度、维护法律原则体系运转、监督管理法律援助行为的责任，以及未履行上述职责所应承担的法律责任。政府责任并不是伴随法律援助制度同时产生的，而是法律援助制度发展到一定阶段的产物，经历了一个曲折漫长的过程，总的趋势是各国对政府责任的认识越来越明确，政府在法律援助中发挥的作用越来越大，政府责任的范围由刑事领域向民事、行政领域扩展，政府承担责任的方式由提供资金发展到立法、设立专门机构、配备专职人员，在法律援助上投入的人力和物力越来越多。政府承担法律援助责任的根据来源于国家的责任、社会的需求、统治的要求，也是国际社会对人权保障的要求。政府责任的内容包括积极的和消极的两方面。积极的责任主要是指政府的作为义务，这是政府责任的主要内容。消极的责任是与积极责任相对的法律责任，是对不履行义务的惩罚。这两方面互相作用，共同构成政府责任的全部内容。第二部分是对各国法律援助政府责任制度的介绍，从政府责任的范围、制度保障、表现形式等三方面，广泛介绍外国的法律援助政府责任的情况，尤其是法律援助制度发达的国家政府责任发展状况，探索法律援助政府责任发展过程中具有普遍性的规律。第三部分是法律援助政府责任与其他主体法律援助责任的关系。法律援助是一个
系统工程，参与主体较多，不同的主体有不同的责任。如何区分政府责任和其他
主体的责任之间的界限，是政府责任实现的重要条件。法律援助的实施过程离不
开律师和法院，政府与二者的关系必须明确。政府责任是律师义务的前提，律师
义务是政府责任的补充。法院的法律援助责任在减免缓诉讼费方面，而不是直接
指派律师方面。这一部分通过对比分析，进一步明确了政府责任的轮廓。第四部
分通过对我国法律援助政府责任的产生发展及特点的分析，指出我国法律援助政
府责任存在的现实障碍，根据前三部分对政府责任的分析，提出解决问题的方法，
使本文对法律援助政府责任的研究有了更深刻的现实意义。笔者认为，在我国政
府责任承担的好坏是法律援助制度成败的关键。制度保障体系不健全、经费保障
不充足、机构框架和职能定位不尽合理、缺乏法律援助实施队伍，这些只是影响
法律援助政府责任的表面障碍，更深层次的障碍在于各级政府官员的观念。在以
经济建设为中心的时代，政府官员是否能够认识到法律援助促进整个社会协调发
展的作用，是否把法律援助当成了政府不可推卸的责任，这才是政府责任实现的
关键。
The legal aid refers to a legal safeguard system that the legal aid organ set up by the government organizes the legal service organ and the legal service personnel to provide with legal service to the litigant who is pressed for money or special case and exempt or reduce his service fee. The government duty is the cornerstone of the theoretical system of the modern legal aid. The government duty growing out of nothing and expanding from small to large reflects the legal aid system with a course of constant perfect and development. Up to the present, strength of government's bearing legal aid duty has become a sign of judging the legal system building of the social civilization of a country. China has developed the legal aid work for near ten years, but in practice, there still exist many handicaps in accomplishment of the government duty and theoretical study lacks deepness and system. In the article, the government duty will be give an all-round analysis to gain a clear idea of its connotation and extensio
n to maximum extent and make a further definitude of the position and role of a government on establishing legal aid system. Moreover combined with actuality, a analysis will be made on the handicaps existed in the course of accomplishing China government duty, and the thinking and suggestion of solving such problems shall be raised.
The article is composed of four parts. The first part is a description of the government duty on the legal aid. The government duty on the legal aid is the one of establishing legal aid system and safeguarding system operation of legal rule, supervising and administrating legal aid action that the government shall be responsible for, and the legal duty without accomplishing the above-mentioned that shall be undertaken. The government duty does not grow accompanying the legal aid system, it is a result of the legal aid system developing to a certain phase. Through a curved and long course, the general trend is that each country has clear cognition for the government duty and the government has played greater roles on the legal aid. The scope of the government duty has extended from the criminal to the civil and administrative fields. The way that government undertakes duty has been developed from offering fund to legislation, setting up special organ and allocating professional personnel. More and more manp
ower and material resources are putting into the legal aid. The basis that government undertakes legal aid duty comes from the national responsibility, the social demands and the ruling requirements, and it is also the requirement of the international society for safeguarding human rights. The government duty includes active and passive aspects. The active one mainly refers to government doing obligation, which is the major content of the government duty. The passive one is
the legal duty opposite to the active one, which is a punishment for not accomplishing duty. Such two aspects act each other and commonly constitute the whole contents of the government duty. The second part introduces the government duty system of the legal aid of every country, which widely gives an introduction to the overseas situations of the government duty on the legal aid in such three aspects as the scope, system safeguard and manifestation of the government duty, especially the development conditions of the government duty of countries with developed legal aid system and universal law in the course of probing into development of the government duty on the legal aid. The third part is the relations between the government duty on the legal aid and the other subjective duties on legal aid. The legal aid is a systematic project with more subjects participated. Different subjects have different duties. How to distinguish the limit of the government duty and other subjective duties on the legal aid is an
important condition to accomplish the government duty. The accomplishment of the legal aid does not apart from layers and courts, so the relations between the government and them two must be defined.
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