我国行政问责制研究—基于“非典”后行政问责制度建设与实践
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摘要
民主政治的实质是责任政治,行政问责制度作为责任政府的主要实现形式,它的建立是我国社会主义法制化进程的重要表现,是民主政治不断发展的必然要求。
自从行政问责制在我国启动以来,一直受到学界的广泛关注,还得到了各级政府的高度重视并着力实施。中央及地方相继出台了一系列相关的法律、法规来规范其操作。但是,我国的行政问责制仍处于探索和实践阶段,还有很多问题亟待我们去研究和解决,这正是本文要研究的课题。
首先,本文从行政问责制的概念出发,通过对国内、外理论研究现状的梳理与分析,结合我国的实际情况,对行政问责制的概念及涵义做出界定。
其次,通过对美、英、法、德四国问责制实践的特点进行分析,指出我国可以从问责文化、完备的法律保障、多元的问责主体以及政府信息公开四个方面借鉴西方发达国家行政问责制的成功经验。
再次,以“非典”后两次“问责风暴”中典型案例为切入点,对我国行政问责制的实施现状展开论述;并结合对近几年中央及地方相继出台的问责制相关规范性文件的分析,指出行政问责制在运行中的趋势及存在问题。探讨了问责制实践过程中由于权限和责任不清,问责文化滞后及相关配套制度缺失等因素导致的诸多困境。
最后,通过对这些障碍的深入分析,为我国的行政问责制的完善与发展提出若干政策建议。包括培育行政问责文化,完善问责制的法制化建设以及建立健全与行政问责有关的配套制度。
The essence of democracy is accountability. Implementing administrative accountability system is regarded as a landmark in china’s construction of democracy. Administrative accountability system is the main form of responsibility government, whose establishment is a significant step in the process of socialist legislation, as well as an inevitable response to the demand of democracy. Since the establishment was launched, it has been gaining deep concerns of the academic circle and high attention of governments at all levels. Many relevant rules have been instituted successively to regulate its operation.
However, China’s administrative accountability system still stays at the initial stage, leaving us a lot of problems to deal with. How to solve these problems effectively is exactly the focus of this study.
Firstly, after reviewing and analyzing the recent researches on administrative accountability system at home and abroad, combined with China’s practical situation, the paper defines the concept and meaning of administrative accountability system. Secondly, through the analysis on the characteristics of officials accountability system in the USA, the UK, France and Germany, this paper concludes that China can learn from the four countries’successful experience in practicing administrative accountability system on the aspects of the accountability culture,complete legal guarantee , multi-subjects of accountability system, and open government information.
Thirdly, taking the two typical accountability cases after the SARS as breakthrough point, this paper introduces the current situation of China’s administrative accountability system. Combined with the analysis on the regulatory documents issued by central government and local authorities related to accountability system in recent years, this paper points out the existing problems and direction of china’s operation of administrative accountability system, and also discusses dilemmas due to unclear power and responsibility during implementation, lagging accountability culture and deletion of supporting systems.
Finally, based on deep analysis on the confronted difficulties in China’s implementing administrative accountability system, this paper offers a number of policy suggestions on its perfection and development, including constructing China’s administrative accountability culture, improving legislation of administrative accountability, and enacting complete and relevant supporting systems.
自从行政问责制在我国启动以来,一直受到学界的广泛关注,还得到了各级政府的高度重视并着力实施。中央及地方相继出台了一系列相关的法律、法规来规范其操作。但是,我国的行政问责制仍处于探索和实践阶段,还有很多问题亟待我们去研究和解决,这正是本文要研究的课题。
首先,本文从行政问责制的概念出发,通过对国内、外理论研究现状的梳理与分析,结合我国的实际情况,对行政问责制的概念及涵义做出界定。
其次,通过对美、英、法、德四国问责制实践的特点进行分析,指出我国可以从问责文化、完备的法律保障、多元的问责主体以及政府信息公开四个方面借鉴西方发达国家行政问责制的成功经验。
再次,以“非典”后两次“问责风暴”中典型案例为切入点,对我国行政问责制的实施现状展开论述;并结合对近几年中央及地方相继出台的问责制相关规范性文件的分析,指出行政问责制在运行中的趋势及存在问题。探讨了问责制实践过程中由于权限和责任不清,问责文化滞后及相关配套制度缺失等因素导致的诸多困境。
最后,通过对这些障碍的深入分析,为我国的行政问责制的完善与发展提出若干政策建议。包括培育行政问责文化,完善问责制的法制化建设以及建立健全与行政问责有关的配套制度。
The essence of democracy is accountability. Implementing administrative accountability system is regarded as a landmark in china’s construction of democracy. Administrative accountability system is the main form of responsibility government, whose establishment is a significant step in the process of socialist legislation, as well as an inevitable response to the demand of democracy. Since the establishment was launched, it has been gaining deep concerns of the academic circle and high attention of governments at all levels. Many relevant rules have been instituted successively to regulate its operation.
However, China’s administrative accountability system still stays at the initial stage, leaving us a lot of problems to deal with. How to solve these problems effectively is exactly the focus of this study.
Firstly, after reviewing and analyzing the recent researches on administrative accountability system at home and abroad, combined with China’s practical situation, the paper defines the concept and meaning of administrative accountability system. Secondly, through the analysis on the characteristics of officials accountability system in the USA, the UK, France and Germany, this paper concludes that China can learn from the four countries’successful experience in practicing administrative accountability system on the aspects of the accountability culture,complete legal guarantee , multi-subjects of accountability system, and open government information.
Thirdly, taking the two typical accountability cases after the SARS as breakthrough point, this paper introduces the current situation of China’s administrative accountability system. Combined with the analysis on the regulatory documents issued by central government and local authorities related to accountability system in recent years, this paper points out the existing problems and direction of china’s operation of administrative accountability system, and also discusses dilemmas due to unclear power and responsibility during implementation, lagging accountability culture and deletion of supporting systems.
Finally, based on deep analysis on the confronted difficulties in China’s implementing administrative accountability system, this paper offers a number of policy suggestions on its perfection and development, including constructing China’s administrative accountability culture, improving legislation of administrative accountability, and enacting complete and relevant supporting systems.
引文
[1]谭功荣,问责制:责任政府最基本的时间形式,福建省委党校学报,2004(7)
[2]朱中原,责任政府的渐进路线,中国改革,2008(6):36-38
[3]Fuller D. & Roffey B. Improving public sector accountability and strategic decision-making,Australian Journal of Public Administration,1993,52(2)
[4]Robert D. Behn,The new public management paradigm and the search for democratic accountability, International Public Management Journal,1998,1 (2):142-146
[5]Delmar D. Dunn, Accountability, democratic theory, and higher education, Educational Policy,2003,17(1):61
[6]特里·L·库珀,行政伦理学:实现行政责任的途径(第四版),北京:中国人民大学出版社,2001
[7]张贤明,论政治责任—民主理论的一个视角,吉林:吉林大学出版社,2000
[8]鲍静,公共行政责任—国际行政学会第一次专门国际会议简况,中国行政管理,1999(11)
[9]张成福,责任政府论,中国人民大学学报,2000
[10]张国庆,公共行政学(第3版),北京:北京大学出版社,2007:437
[11]Lee Parker,Graeme Gould,Changing public sector accountability:critiquing new directions,Accounting Forum,1999(2):117
[12]Lars Lindquist,Sue Llewellyn,Accountability,responsibility and organization, Scandinavian,Journal of Management,2003(19):252
[13]陈芳,公共责任与官员问责制,东南学术,2005(2):39
[14]世界银行专家组,公共部门的社会责任:理念探讨及模式分析(宋涛译),北京:人民大学出版社,2007:5
[15]宋涛,行政问责概念及内涵辨析,深圳大学学报,2005,22(2)
[16]诺斯,制度、制度变迁与经济绩效,上海:三联书店出版社,1994:5
[17]顾杰,论我国行政问责制的现状与完善,理论月刊,2004(12):5
[18]蒋晓伟,要重视中国特色问责制度的建设,检察风云,2005(6):30
[19]赵素卿,问责制:民主执政的重要方式,中共山西省委党校学报,2004(6)
[20]毛寿龙,责任政府的理论及其政策意义,行政论坛,2007(2)
[21]渝纪法,关于问责制有关问题的思考,探索,2005(4):82
[22]周亚越,行政问责制研究,北京:中国检察出版社,2006
[23]顾杰,论我国行政问责制的现状与完善,理论月刊,2004(12):5
[24]刘厚金,我国行政问责制的多维困境及其路径选择,学术论坛,2005(11)
[25]韩剑琴,建立责任政府的新探索—行政问责制,探索与争鸣,2004(8):20
[26]周仲秋,论行政问责制,社会科学家,2004(3):129
[27]杜钢建,走向政治问责制,中国经济时报,2005-05-26
[28]卢梭,社会契约论,北京:商务印书馆,2003:84
[29]约翰·密尔,代议制政府,北京:商务印书馆,1982
[30]詹姆斯·M·布坎南,自由、市场和国家,北京:经济学院出版社,1988
[31]克劳德·梅纳尔,制度、契约与组织—从新制度经济学角度的透视,北京:经济科学出版社,2003:42
[32]任向东,美国宪政历程,影响美国的25个司法大案, http://www.jcrb.com/zyw/n334/ca284001.htm
[33]欧文·E·休斯,公共管理学导论,北京:中国人民大学出版社,2001:58
[34]美国哈佛大学费正清东亚研究中心,欧美的官员问责制:做官有责任也有风险,环球时报,2004-05-24(7)
[35]问责风暴之后的制度思考, http://news.21cn.com /domestic/shiyong/2008/5376485. shtm.l /10/27
[36]宋涛,新公共管理阶段行政问责的变化特点,深圳大学学报,2007(1)
[37]陈国权,政治监督论,北京:学林出版社,2000
[38]宋涛,中国官员问责发展实证研究,中国行政学院,2008(1)
[39]陈党,行政问责实践中存在的主要问题及解决途径,理论与改革,2006(5)
[40]龚维斌,“风暴眼”中的官员问责制,领导之友,2009(2)
[41]郭巍青,行政问责制度的困境,领导文萃,2009(2)
[42]衡洁,问责风暴后的制度思考,廉政瞭望,2008(10)
[43]胡彩娟,对引咎辞职制度化的思考,党政论坛,2005(10):29-31
[44]王勇,我国政府问责制功效之影响因素,行政论坛,2007(3):41-45
[45]周仲秋,长沙首推行政问责制:政策文本解读及其分析,理论探讨,2004 (3)
[46]薛汉瑞,我国行政问责制存在的问题及对策研究,国家行政学院学报,2007 (3):61-64
[47]褚松燕,我国政府信息公开的分析与思考,云南行政学院学报,2004(6)
[48]汪伟全,公民参与:推进行政问责的重要途径,探索与争鸣,2007(7):36-38
[49]戈登·塔洛克,寻租—对寻租活动的经济学分析,成都:西南财经大学出版社,1999:68-70
[50]吴健南,阎波,政府绩效:理论诠释、实践分析与行动策略,西安交通大学报,2004(3)
[51]高小平,深入研究行政问责制切实提高政府执行力,中国行政管理,2007 (8):6-8
[52]胡建淼,领导人行政责任问题研究,杭州:浙江大学出版社,2005:128
[53]盖伊·彼得斯,政府未来的治理模式,北京:中国人民大学出版社,2001
[54]徐祖斌,深化干部人事制度改革建立健全公正用人机制,理论视野,2005 (1):23
[55]杨帆,中国政府官员问责制亟须法制化与程序化,人大研究,2009(1)
[2]朱中原,责任政府的渐进路线,中国改革,2008(6):36-38
[3]Fuller D. & Roffey B. Improving public sector accountability and strategic decision-making,Australian Journal of Public Administration,1993,52(2)
[4]Robert D. Behn,The new public management paradigm and the search for democratic accountability, International Public Management Journal,1998,1 (2):142-146
[5]Delmar D. Dunn, Accountability, democratic theory, and higher education, Educational Policy,2003,17(1):61
[6]特里·L·库珀,行政伦理学:实现行政责任的途径(第四版),北京:中国人民大学出版社,2001
[7]张贤明,论政治责任—民主理论的一个视角,吉林:吉林大学出版社,2000
[8]鲍静,公共行政责任—国际行政学会第一次专门国际会议简况,中国行政管理,1999(11)
[9]张成福,责任政府论,中国人民大学学报,2000
[10]张国庆,公共行政学(第3版),北京:北京大学出版社,2007:437
[11]Lee Parker,Graeme Gould,Changing public sector accountability:critiquing new directions,Accounting Forum,1999(2):117
[12]Lars Lindquist,Sue Llewellyn,Accountability,responsibility and organization, Scandinavian,Journal of Management,2003(19):252
[13]陈芳,公共责任与官员问责制,东南学术,2005(2):39
[14]世界银行专家组,公共部门的社会责任:理念探讨及模式分析(宋涛译),北京:人民大学出版社,2007:5
[15]宋涛,行政问责概念及内涵辨析,深圳大学学报,2005,22(2)
[16]诺斯,制度、制度变迁与经济绩效,上海:三联书店出版社,1994:5
[17]顾杰,论我国行政问责制的现状与完善,理论月刊,2004(12):5
[18]蒋晓伟,要重视中国特色问责制度的建设,检察风云,2005(6):30
[19]赵素卿,问责制:民主执政的重要方式,中共山西省委党校学报,2004(6)
[20]毛寿龙,责任政府的理论及其政策意义,行政论坛,2007(2)
[21]渝纪法,关于问责制有关问题的思考,探索,2005(4):82
[22]周亚越,行政问责制研究,北京:中国检察出版社,2006
[23]顾杰,论我国行政问责制的现状与完善,理论月刊,2004(12):5
[24]刘厚金,我国行政问责制的多维困境及其路径选择,学术论坛,2005(11)
[25]韩剑琴,建立责任政府的新探索—行政问责制,探索与争鸣,2004(8):20
[26]周仲秋,论行政问责制,社会科学家,2004(3):129
[27]杜钢建,走向政治问责制,中国经济时报,2005-05-26
[28]卢梭,社会契约论,北京:商务印书馆,2003:84
[29]约翰·密尔,代议制政府,北京:商务印书馆,1982
[30]詹姆斯·M·布坎南,自由、市场和国家,北京:经济学院出版社,1988
[31]克劳德·梅纳尔,制度、契约与组织—从新制度经济学角度的透视,北京:经济科学出版社,2003:42
[32]任向东,美国宪政历程,影响美国的25个司法大案, http://www.jcrb.com/zyw/n334/ca284001.htm
[33]欧文·E·休斯,公共管理学导论,北京:中国人民大学出版社,2001:58
[34]美国哈佛大学费正清东亚研究中心,欧美的官员问责制:做官有责任也有风险,环球时报,2004-05-24(7)
[35]问责风暴之后的制度思考, http://news.21cn.com /domestic/shiyong/2008/5376485. shtm.l /10/27
[36]宋涛,新公共管理阶段行政问责的变化特点,深圳大学学报,2007(1)
[37]陈国权,政治监督论,北京:学林出版社,2000
[38]宋涛,中国官员问责发展实证研究,中国行政学院,2008(1)
[39]陈党,行政问责实践中存在的主要问题及解决途径,理论与改革,2006(5)
[40]龚维斌,“风暴眼”中的官员问责制,领导之友,2009(2)
[41]郭巍青,行政问责制度的困境,领导文萃,2009(2)
[42]衡洁,问责风暴后的制度思考,廉政瞭望,2008(10)
[43]胡彩娟,对引咎辞职制度化的思考,党政论坛,2005(10):29-31
[44]王勇,我国政府问责制功效之影响因素,行政论坛,2007(3):41-45
[45]周仲秋,长沙首推行政问责制:政策文本解读及其分析,理论探讨,2004 (3)
[46]薛汉瑞,我国行政问责制存在的问题及对策研究,国家行政学院学报,2007 (3):61-64
[47]褚松燕,我国政府信息公开的分析与思考,云南行政学院学报,2004(6)
[48]汪伟全,公民参与:推进行政问责的重要途径,探索与争鸣,2007(7):36-38
[49]戈登·塔洛克,寻租—对寻租活动的经济学分析,成都:西南财经大学出版社,1999:68-70
[50]吴健南,阎波,政府绩效:理论诠释、实践分析与行动策略,西安交通大学报,2004(3)
[51]高小平,深入研究行政问责制切实提高政府执行力,中国行政管理,2007 (8):6-8
[52]胡建淼,领导人行政责任问题研究,杭州:浙江大学出版社,2005:128
[53]盖伊·彼得斯,政府未来的治理模式,北京:中国人民大学出版社,2001
[54]徐祖斌,深化干部人事制度改革建立健全公正用人机制,理论视野,2005 (1):23
[55]杨帆,中国政府官员问责制亟须法制化与程序化,人大研究,2009(1)