【作者】 韩冰；

【导师】 刘向文；

【作者基本信息】 郑州大学 ， 宪法学与行政法学， 2012， 博士

【摘要】 2000年5月7日,普京就任第三届俄罗斯联邦总统。在普京实施振兴俄罗斯的计划中,国家机关效率低下是遇到的主要困难之一。为了改变这种局面,普京着手在国家生活的各个领域进行改革,包括行政改革和国家公务改革。2001年8月俄罗斯联邦启动了国家公务改革,并于2003年5月颁布《俄罗斯联邦国家公务体系法》,建立了颇具特色的国家公务体系。俄罗斯联邦的国家公务体系若以国家公务的内容为分类标准,可以划分为国家文职公务、国家军职公务和国家护法公务三个分支体系。2004年5月颁布的《俄罗斯联邦国家文职公务法》以及之前颁布的《兵役制与军职公务法》,分别确认了俄罗斯联邦的国家文职公务制度和军职公务制度。目前,俄罗斯联邦尚未颁布国家护法公务法。俄罗斯联邦的国家护法公务制度,暂时由众多的联邦法律和规范性文件予以调整。俄罗斯联邦国家文职公务制度是俄罗斯联邦三种国家公务制度之俄罗斯联邦国家文职公务制度是指由俄罗斯联邦宪法和法律确认的,由国家文职公务员在相应文职公务职位上从事保证国家权力行使职务活动的制度的总和。俄罗斯联邦的国家文职公务制度由国家文职公务职位和国家文职公务员两个基本部分组成。目前,在俄罗斯联邦的立法权力机关、执行权力机关和司法权力机关,以及行使国家权力的其他国家机关里,都设立有国家文职公务职位。与此相适应,在上述国家文职公务职位上,都有国家文职公务员在从事保证国家权力行使的职务活动。因此,国家文职公务制度是三种国家公务制度中涉及领域最广、人数最多的公务制度种类,是国家公务制度最基本的组成部分。俄罗斯联邦国家文职公务法详细规定了国家文职公务制度的基本原则、法律关系的主体、法律关系的内容等,形成了完整的法律关系调整链条。俄罗斯联邦国家文职公务制度是国家公务改革的成果之一。以改革为背景,俄罗斯联邦国家文职公务制度被赋予了多重功能。一是规范权力运行。国家文职公务法通过确认利益冲突防控制度、财产申报和公开制度,规范国家文职公务员的行政管理权。国家文职公务法规范权力运行的主要方向,是预防国家文职公务员的贪污贿赂行为。二是提升国家文职公务员的素质。俄罗斯联邦在政府改革中遇到的突出问题,是国家文职公务员的素质下降导致国家机关的威望大大降低。针对这一问题,国家文职公务法用法律文件的形式,确认国家文职公务员的职业道德规范,积极改善国家文职公务员的工作作风,以提高国家文职公务员的素质。三是促进公民社会的发展。国家文职公务法要求国家文职公务与公民社会之间相互配合,要求确立公务信息公开原则。加强沟通,是国家文职公务制度促进公民社会发展的基本要求。四是提高管理效率。国家文职公务法确认了国家文职公务员职务活动的保障制度、奖惩制度和绩效评价制度,以便对国家文职公务员的职务活动进行评价。俄罗斯联邦国家文职公务制度的确立,经历了十月革命前沙皇俄国的“官阶表”、前苏联时期的“国家干部职位名录”和当代俄罗斯的国家公务体系三个发展阶段。俄罗斯联邦国家文职公务制度,既继承了沙皇俄国和前苏联时期人事管理模式的若干法律传统,又根据本国的现实国情借鉴了西方发达国家的文官制度。俄罗斯联邦国家文职公务制度有较优良的制度设计,但也存在问题与不足。特别是在制度实施过程中,暴露出俄罗斯联邦国家文职公务制度难以回避的法治困境。在未来一段时期内,俄罗斯联邦国家文职公务制度还将沿着以下方向继续发展。国家文职公务制度的内容将不断完善,继续保持推动制度良性发展的积极因素,继续加强国家文职公务制度与公民社会之间的协调配合。研究俄罗斯联邦国家文职公务制度的发展脉络、制度内容和功能,评价俄罗斯联邦国家文职公务制度的得失,可以对我国公务员制度的构建提出三点启示。一是构建我国的公务员体系,以体系化的思路整合我国的干部人事制度。具体地说,在今后时机成熟时,进一步完善《中华人民共和国公务员法》,使其成为我国干部人事制度的“总法”。该法应当根据公务员工作性质的不同,对公务员进行分类管理,实现人事管理的全面法制化。二是继续完善我国公务员管理的具体制度。例如,以立法形式明确规定公务员的职位、职业道德规范等,对公务员实行法制化管理；完善公务员的权利救济机制,进一步保障公务员的权利。三是用宪法规范确认我国公务员制度的基本原则,以便建立我国的公务员法律体系。上述启示,对深化我国干部人事制度的改革,进一步完善我国的公务员制度,具有重要的借鉴意义。更多还原

【Abstract】 Putin was elected the third President of Russian Federation on May 7,2000. During the process of implementation of Putin’s plans for revitalization of Russia, the inefficiency of state organs is one of the difficulties encountered. To change this situation, Putin began to implement reform in various fields of national life, administrative reform and reform of national official duty. The reform of national official duty was launched in August 2001, and promulgated the Law on the System of National official duty of Russian Federation in May 2003. The distinctive system of national official duty has been primarily established since then. System of national official duty of Russian Federation can be divided into national civilian official duty, national military official duty and national law-protecting official duty according to the contents of national official duty. "Law on National Civilian Official Duty of Russian Federation" promulgated in May 2004 and "Law on Military Service and Military Official duty" promulgated before the former one confirm the system of national civilian official duty and military official duty respectively. Presently, "Law on National Law-protecting Official Duty" has yet to be promulgated. The system of national law-protecting official duty of Russian Federation is temporarily regulated by numerous federal laws and norm documents. The system of national civilian official duty of Russian Federation is one of three kinds of system of national official duty of Russian Federation.The system of civilian official duty of Russian Federation consists of all the rules that observed by civilian officials in corresponding civilian posts while engaging in the functional activities of guaranteeing the exercise of power and confirmed by Constitution and laws of Russian Federation. The system of national civilian official duty of Russian Federation consists of two basic parts:posts of national civilian official duty and national civilian officials. At present, posts of national civilian official duty are established in legislative organs, executive organs and judicial organs, as well as other state organs exercising state power of Russian Federation. Correspondingly, there are national civilian officials engaging in the functional activities of guaranteeing the exercise of power. Therefore, the system of civilian official duty involves the widest area and has the most officials among three kinds of system of national official duty.Law on National Civilian Official Duty of Russian Federation specifies basic principles of the system of national civilian official duty, subjects and contents of legal relationship. System of national civilian official duty of Russian Federation is one of the outcomes of reform of national official duty.On the background of reform, system of civilian official duty of Russian Federation is given multiple functions. The first is to regulate the exercise of power. Law on National Civilian Official Duty of Russian Federation regulate the exercise of executive power through confirming system of controlling conflicts of interests, system of reporting property and system of publication. The main direction of regulating the exercise of power is to prevent national civilian officials from corruption and bribery. The second is to enhance the quality of national civilian officials. Prominent problem encountered in the process of reform is that the prestige of the state organs is greatly reduced by the decline of the quality of national civilian officials. Law on National Civilian Official Duty confirms professional ethics of national civilian officials in order to actively improve work style of national civilian officials and improve quality of national civilian officials. The third is to promote the development of civil society. Law on National Civilian Official Duty not only requires collaboration between national civilian official duty and civil society, but also requires the establishment of the principle of openness of official information. Strengthening communication is the basic requirement of the system of national civilian official duty to promote the development of civil society. The fourth is to improve management efficiency. In order to evaluate the functional activities of national civilian officials, Law on National Civilian Official Duty confirms security system, performance evaluation system, and system of rewards and penalties of the functional activities of national civilian officials.Establishment of system of civilian official duty of Russian Federation experiences three stages:"the table of official rank" in Tsarist Russia before the October Revolution, "the list of positions" in Soviet Union and contemporary national official duty in Russia. The system of civilian official duty of Russian Federation not only inherits legal tradition of personnel management pattern in Tsarist Russia and Soviet Union, but also benefits from civil service system of western developed country according to national conditions. Although the design of system of national civilian official duty of Russian Federation is good, there are still some problems and shortcomings. Especially in the implementation process of the system, the plight of the system of civilian official duty of Russian Federation which is difficult to evade is exposed. In the future, the development trend of the system of national civilian official duty of Russian Federation will have three characteristics: continue to improve the contents, continue to maintain a positive factor to promote the healthy development of the system, continue to strengthen coordination between the system of national civilian official duty and civil society.Studying the development, the contents and the function of the system of national civilian official duty of Russian Federation, and evaluating the pros and cons of the system can make three points for the construction of China’s civil servant system. The first is to build China’s civil servant system. The cadre and personnel system should be integrated through a systematic idea. Specifically, in the future, the Civil Servant Law of the People’s Republic of China should be further improved, thereby making it the "Total Law" of the personnel management system. In order to achieve the convergence of civil servant system and personnel system, and achieve full legalization of personnel management, the law should divide civil servants into different types for administration depending on the nature of their work. The second is to improve civil servant management system. For example, legislation should provide for civil servant posts, professional ethics, legal management, improvement of relief mechanism and deep protection of the rights of civil servants. The third is to confirm basic principles of our civil servant system in constitution so that the legal system of our civil servants can be established. The revelations above have important referential significance for deepening the reform of China’s cadre and personnel system and improving China’s civil servant system.更多还原