公务员依法行政能力建设研究
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摘要
依法治国的基本方略在九届人大二次会议上以宪法修正案的方式载入《中华人民共和国宪法》,规定“中华人民共和国实行依法治国,建设社会主义法治国家。"这个重要规定是我们国家迈向法治化管理的里程碑。党的十六大提出,必须坚持依法行政,不断提高依法行政能力。党的十六届四中全会《决定》中进一步指出,依法行政是党在新的历史条件下领导方式和执政方式的重大转变,是实行依法治国基本方略、发展社会主义民主政治、建设社会主义政治文明的必然要求。党的十七大报告从坚持和发展中国特色社会主义的战略高度和全局角度,进一步强调要“全面落实依法治国基本方略,加快建设社会主义法治国家”。
依法行政是依法治国的关键和核心,是落实依法治国方略的基本保障。公务员是各级政府的工作人员,是行使国家行政权力、执行国家公务的主体,肩负着政府管理国家事务和社会公共事务的主要责任。公务员能力建设是政府改革与发展中始终关注的重要问题。当前,世界各国都把培养高素质队伍、优化公务员能力结构、提升政府的国际竞争力作为重要课题和优先工作来积极应对。公务员依法行政能力是公务员具备的基本能力之一。宪法和法律、法规的许多条文主要是靠行政机关和国家公务员去贯彻执行,公务员作为行政行为的主体,其行政权的运用,最经常、最广泛、最密切地关系着社会公共利益和公民个人利益,体现国家政权的性质,影响党和政府同广大人民群众的关系。公务员队伍依法行政能力的建设,关系到党的执政能力建设能否在国家行政系统中有效的落实。近年来,公务员的依法行政能力作为公务员行政能力建设的一个热点倍受人们关注。但目前部分公务员的依法行政能力较弱,影响依法行政的正常进行。所以,在加强党的执政能力建设和构建社会主义和谐社会的时代背景下,在不断推进社会主义市场经济体制发展和深化政府体制改革的进程中,我们必须把加强公务员依法行政能力建设放到战略的高度予以认真研究和探讨。
本文通过调查研究,从我国公务员依法行政能力现状和存在问题入手,在阐述公务员依法行政能力建设目标的基础上,提出对公务员加强依法行政培训、完善公务员管理制度、提高公务员尤其是领导的依法决策能力。最后,提出了加强公务员依法行政能力建设的对策建议,为推进我国公务员能力建设做出一些探索性研究。
Ruling of law as a basic policy has been adopted as amendments to the Constitution in the Second Session of the Ninth National Party Congress and embalmed in constitution of People's Republic of China, stipulating that "China administer state affairs by Law and build a socialism country under the rule of law". It is an important milestone on China's course to become a country that governs by law. The Sixteenth National Party Congress proposes that China will insist on governing by the law and continue to improve governance capability. The "Decision", which adopted in the 16th Party's central committee conference, further indicates that run the state by law is a major change of the way in leadership and governance in the new historical period and it is also to carry out rule of law as a fundamental principle, develop socialist democracy and establish a socialist political civilization. The report of 17th National Congress of the CPC further emphasizes and indicates that China will 'comprehensively implement the rule of law as a fundamental principle and speed up building of a socialist country under the rule of law' from the strategic perspective and overall situation of persisting and developing socialism with Chinese characteristics.
Administration by Law is an important part and it is also the key and core of ruling by law. Administration by law is basic protection for implementing the rule of law as a fundamental principle. Civil servant is people who work in government at all levels and the main body of carrying out national affairs, exerting the administrative power and shouldering the major responsibility of managing state affairs and public affairs for government. Building capacity of civil servant always attracts attention in the process of reforming and developing for government. Today, the countries from all over the world regard that training high qualificatory civil servants team, optimizing ability of civil servant structure and promoting government international competitiveness as a subject of great moment and a top priority issue to cope with. Ability to perform duties in accordance with the law for civil servant is one of basic capacity. Civil servant in administrative and national agency primarily carries out the regulation of Constitution and law. Civil servant is subject of administrative behavior and its operation to executive authority is most regularly, extensively and intimately in relation with society interest and private interest, reflecting the nature of State and influencing the relationship between government and masses. Construction of civil servant troops in accordance with the law is concerning how to effectively carry out in ruling ability construction of the party. In recent years, administration by law of civil servant is the hot topic in building of civil servant capability and attracts a lot of attention. Administration capability of part civil servant by law is still weak and affect the normal proceed of ruling by law. Administration capability by law of part civil servant is still weak and affect the normal proceed of ruling by law. Under new times of building up the Party's governing capacity and a harmonious socialist society, improving socialist market economic system and deepening the reforms of the state system, we must seriously study and discuss how to reinforce the construction of civil servant capability building from strategic perspective.
This article that is from current situation and problems existing in ability of China civil servants to perform duties in accordance with the law, which analyzes reasons of existing problems, elaborates major objective, proposes administrative training, improves the state civil service system and increases decision making ability especially for leaders. Lastly, this article proposes ideas for building the civil servant ability in ruling by law; make a tentative study in impelling process of building capacity of Chinas civil servants.
依法行政是依法治国的关键和核心,是落实依法治国方略的基本保障。公务员是各级政府的工作人员,是行使国家行政权力、执行国家公务的主体,肩负着政府管理国家事务和社会公共事务的主要责任。公务员能力建设是政府改革与发展中始终关注的重要问题。当前,世界各国都把培养高素质队伍、优化公务员能力结构、提升政府的国际竞争力作为重要课题和优先工作来积极应对。公务员依法行政能力是公务员具备的基本能力之一。宪法和法律、法规的许多条文主要是靠行政机关和国家公务员去贯彻执行,公务员作为行政行为的主体,其行政权的运用,最经常、最广泛、最密切地关系着社会公共利益和公民个人利益,体现国家政权的性质,影响党和政府同广大人民群众的关系。公务员队伍依法行政能力的建设,关系到党的执政能力建设能否在国家行政系统中有效的落实。近年来,公务员的依法行政能力作为公务员行政能力建设的一个热点倍受人们关注。但目前部分公务员的依法行政能力较弱,影响依法行政的正常进行。所以,在加强党的执政能力建设和构建社会主义和谐社会的时代背景下,在不断推进社会主义市场经济体制发展和深化政府体制改革的进程中,我们必须把加强公务员依法行政能力建设放到战略的高度予以认真研究和探讨。
本文通过调查研究,从我国公务员依法行政能力现状和存在问题入手,在阐述公务员依法行政能力建设目标的基础上,提出对公务员加强依法行政培训、完善公务员管理制度、提高公务员尤其是领导的依法决策能力。最后,提出了加强公务员依法行政能力建设的对策建议,为推进我国公务员能力建设做出一些探索性研究。
Ruling of law as a basic policy has been adopted as amendments to the Constitution in the Second Session of the Ninth National Party Congress and embalmed in constitution of People's Republic of China, stipulating that "China administer state affairs by Law and build a socialism country under the rule of law". It is an important milestone on China's course to become a country that governs by law. The Sixteenth National Party Congress proposes that China will insist on governing by the law and continue to improve governance capability. The "Decision", which adopted in the 16th Party's central committee conference, further indicates that run the state by law is a major change of the way in leadership and governance in the new historical period and it is also to carry out rule of law as a fundamental principle, develop socialist democracy and establish a socialist political civilization. The report of 17th National Congress of the CPC further emphasizes and indicates that China will 'comprehensively implement the rule of law as a fundamental principle and speed up building of a socialist country under the rule of law' from the strategic perspective and overall situation of persisting and developing socialism with Chinese characteristics.
Administration by Law is an important part and it is also the key and core of ruling by law. Administration by law is basic protection for implementing the rule of law as a fundamental principle. Civil servant is people who work in government at all levels and the main body of carrying out national affairs, exerting the administrative power and shouldering the major responsibility of managing state affairs and public affairs for government. Building capacity of civil servant always attracts attention in the process of reforming and developing for government. Today, the countries from all over the world regard that training high qualificatory civil servants team, optimizing ability of civil servant structure and promoting government international competitiveness as a subject of great moment and a top priority issue to cope with. Ability to perform duties in accordance with the law for civil servant is one of basic capacity. Civil servant in administrative and national agency primarily carries out the regulation of Constitution and law. Civil servant is subject of administrative behavior and its operation to executive authority is most regularly, extensively and intimately in relation with society interest and private interest, reflecting the nature of State and influencing the relationship between government and masses. Construction of civil servant troops in accordance with the law is concerning how to effectively carry out in ruling ability construction of the party. In recent years, administration by law of civil servant is the hot topic in building of civil servant capability and attracts a lot of attention. Administration capability of part civil servant by law is still weak and affect the normal proceed of ruling by law. Administration capability by law of part civil servant is still weak and affect the normal proceed of ruling by law. Under new times of building up the Party's governing capacity and a harmonious socialist society, improving socialist market economic system and deepening the reforms of the state system, we must seriously study and discuss how to reinforce the construction of civil servant capability building from strategic perspective.
This article that is from current situation and problems existing in ability of China civil servants to perform duties in accordance with the law, which analyzes reasons of existing problems, elaborates major objective, proposes administrative training, improves the state civil service system and increases decision making ability especially for leaders. Lastly, this article proposes ideas for building the civil servant ability in ruling by law; make a tentative study in impelling process of building capacity of Chinas civil servants.
引文
1 秦榆.韩非子学院.中国长安出版社,2006:21
1 卢明.论依法行政.中国行政管理,2005(1):37
1 城仲模.行政法之基础理论.台湾三民书局,1983:75
2 王名扬.法国行政法.中国政法大学出版社,1991:195
1 王名扬.美国行政法(上).中国法制出版社,1995:110-117
2 黄曙海.政府法制工作的理论和实践.北京新华出版社,1989:45
1 吉龙华,安树昆,李治.公务员依法行政能力研究.云南行政学院学报,2006(6):15页
2 何修良.公务员依法行政能力培训教程.人民出版社,2005:19
3 吉龙华,安树昆,李治.公务员依法行政能力研究.云南行政学院学报,2006(6):16
1 何修良.公务员依法行政能力培训教程.人民出版社,2005:93
1 李亚梅,张贞德.国家公务员依法行政能力.中国社会科学出版社,2004:32
1 邱沛恩.试论公务员的能力构成与建设.新视野,2004(3):47
1 法律网.公务员依法行政能力建设论纲.2005.4.8.Http://www.Law breeze.Net/2004/5-10/17438.html
1 参见1994年3月8日人事部发布的《国家公务员考核暂行规定》
1 参见1995年7月3日人事部发布的《国家公务员奖励暂行规定》
2 参见1996年7月6日人事部发布的《国家公务员培训暂行规定》
3 参见1999年6月24日人事部发布的《关于实行国家公务员培训证书管理制度的通知》
1[法]孟德斯鸠,张雁深译..论法的精神.商务印书馆,1997:154-156
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[6]沈建乐.关于提高国家公务员能力素质的思考.中国公务员,2003(9):8-9
[7]江海凌.国家公务员必须加强依法办事的意识.辽宁行政学院学报,1999(1):14
[8]吉龙华.关于程序与实体的法哲学思考.南京行政学院学报,2003(2):23
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[18]关于加强领导干部学法用法工作的若干意见.北京:人民出版社,2002
[19]全面推进依法行政的实施纲要.北京:人民出版社,2004
[20]国家公务员通用能力标准框架(试行).北京:人民出版社,2004
[21]彭国甫.公务员依法行政读本.海南:海南出版社,2002
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1 卢明.论依法行政.中国行政管理,2005(1):37
1 城仲模.行政法之基础理论.台湾三民书局,1983:75
2 王名扬.法国行政法.中国政法大学出版社,1991:195
1 王名扬.美国行政法(上).中国法制出版社,1995:110-117
2 黄曙海.政府法制工作的理论和实践.北京新华出版社,1989:45
1 吉龙华,安树昆,李治.公务员依法行政能力研究.云南行政学院学报,2006(6):15页
2 何修良.公务员依法行政能力培训教程.人民出版社,2005:19
3 吉龙华,安树昆,李治.公务员依法行政能力研究.云南行政学院学报,2006(6):16
1 何修良.公务员依法行政能力培训教程.人民出版社,2005:93
1 李亚梅,张贞德.国家公务员依法行政能力.中国社会科学出版社,2004:32
1 邱沛恩.试论公务员的能力构成与建设.新视野,2004(3):47
1 法律网.公务员依法行政能力建设论纲.2005.4.8.Http://www.Law breeze.Net/2004/5-10/17438.html
1 参见1994年3月8日人事部发布的《国家公务员考核暂行规定》
1 参见1995年7月3日人事部发布的《国家公务员奖励暂行规定》
2 参见1996年7月6日人事部发布的《国家公务员培训暂行规定》
3 参见1999年6月24日人事部发布的《关于实行国家公务员培训证书管理制度的通知》
1[法]孟德斯鸠,张雁深译..论法的精神.商务印书馆,1997:154-156
[1]徐仁璋.公共行政学.北京:中国财政经济出版社,2002
[2]张国庆.行政管理学概论.北京:北京大学出版社,2000
[3]何蕾.对提升我国公务员素质的制度思考.云南行政学院学报,2003(1):36
[4]李书琴.公务员素质与政风建设.中共山西省委党校报,2003(5):24
[5]翟圣绪.公务员的素质教育任重而道远.辽宁行政学院学报,2000(6):22
[6]沈建乐.关于提高国家公务员能力素质的思考.中国公务员,2003(9):8-9
[7]江海凌.国家公务员必须加强依法办事的意识.辽宁行政学院学报,1999(1):14
[8]吉龙华.关于程序与实体的法哲学思考.南京行政学院学报,2003(2):23
[9][德]哈特穆特·毛雷尔.行政法学总论.高家伟译.北京:法律出版社,2000
[10]吉龙华.试论行政决策科学化、民主化的法律保障.探索,2004(5):18
[11]竺乾威.公共行政学.上海:复旦大学出版社,2003
[12]孙荣,徐红.行政学原理.上海:复旦大学出版社,2001
[13]吉龙华著.公务员依法行政能力建设.北京:国家行政学院出版社,2005
[14]石佑启.行政服务承诺制析论.行政法论丛,2001(4):26
[15]中华人民共和国公务员法.北京:法律出版社,2005
[16]国家公务员暂行条例.北京:人民出版社,1993
[17]张国庆.行政管理学概论.北京:北京大学出版社,2000
[18]关于加强领导干部学法用法工作的若干意见.北京:人民出版社,2002
[19]全面推进依法行政的实施纲要.北京:人民出版社,2004
[20]国家公务员通用能力标准框架(试行).北京:人民出版社,2004
[21]彭国甫.公务员依法行政读本.海南:海南出版社,2002
[22]王和平.提升公务员行政能力的思考.中国公务员,2002(7):10
[23]顾肃.论法治现代化的基本原则[J].江苏社会科学,1996(4):22-23
[24]王忠禹.关于全面推进依法行政的几个问题.国家行政学院学报,2001(4):9-10
[25]光明网.对于行政文化建设的一点认识[EB/OL].2005.4.28.http://www.gmw.cn/content/ 2005-02/23/ content_182089.htm
[26]张正军.公共管理行为控制中的激励问题.学术月刊,2004(5):7-8
[27]廖嵘.WTO与公务员能力建设.云南行政学院学报,2004(5):21
[28]姜明安.行政法和行政诉讼法.北京:北京大学出版社,1999:15
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