劳动监察权：法学解构与制度规范

【作者】 范晶波；

【导师】 秦国荣；

【作者基本信息】 南京师范大学 ， 宪法学与行政法学， 2014， 博士

【摘要】 劳动监察作为一项保障劳动者合法权益的劳动执法活动,在调整劳资关系的法律机制中扮演着重要角色,承担着劳工权益“底线控制”的国家责任。当前,我国劳动关系领域面临着社会转型和全球化的双重冲击,有限的就业机会和资本流动寻求利益最大化,造成了工作条件和劳动者利益的“竞相逐底”。劳资矛盾与冲突日益凸显,不利于社会经济的稳定与可持续性发展。这亟待要求对劳动监察制度重新审视,即如何更为有效地保护在劳动关系中处于整体弱势的劳动者。劳动监察是劳动执法部门的行政行为。行政法视角的劳动监察研究,除了借鉴劳动法学的已有成果外,更要注重具有行政法学自身特点的研究内容。该视角研究的核心是劳动监察控制问题,劳动监察控制的核心则是劳动监察权。对劳动监察权进行法学解构及制度规范,其研究的目标在于：通过解构劳动监察权,为国家履行保护劳动者权益义务提供理论基础与制度设计,更好地指导劳动监察制度的法治化建设；深入探究影响劳动监察权功能发挥的积极和消极因素,使劳动监察真正成为人权保护和社会正义的重要保障,从而寻求实现劳资和谐的途径,推动社会和谐的进程。这需要从下述环节展开探讨：首先,确定劳动监察权的权力性质及其边界。劳动关系固有的从属性特征决定了劳动监察权的公法属性。劳动监察权是公权力介入调整特定劳动关系领域的行政执法权,依法介入和尊重契约是劳动行政执法机关行使劳动监察权的基本原则。公权介入到劳动关系领域的法律依据是以劳动基准为核心的强制性劳动法律规范,而非强制性的劳动法律规范则规范私权自治的空间。劳动监察权与劳动仲裁权、司法诉讼权存在各自的权力边界。确认劳动监察权存在的必要性及正当性,为完善劳动监察制度提供了权力界定的理论基础。其次,厘清劳动监察权的功能定位及其发挥。这需要从劳动监察权的内在法律机理及演进逻辑着手,从理论和实践层面发掘劳动监察权的功能,以及影响其功能发挥的因素。探究劳动监察权的功能定位取决于两个层面的分析：其一是透视劳动监察制度的历史演进过程；其二是揭示社会变迁与劳动监察的相互关系。劳动监察权功能的基本出发点及归宿应定位于维护劳工合法权益。是否实现劳资利益调控是劳动监察权功能发挥的内在价值判断。现实中,劳动监察权还统合了工会的维权功能以及劳资纠纷解决功能。厘清劳动监察权的功能定位和发挥,能够明确劳动监察权的价值目标与职能定位。再者,剖析劳动监察权的法律运行及其规范。从劳动监察运行的价值取向、权力主体、权能的分解与配置,以及权力的制约与控制等方面对此论证,认为劳动监察权的法律运行及规范涉及到权力的控制、程序正义的实现、民主与公共协商的引入、利益相关者及被监管者的参与及其监督制衡问题。法治理论和治理理论为化解这一系列问题提供了有益的思路。对劳动监察权的法律运行及其规范的探讨,应围绕权力主体、权力运行路径、以及权力程序的构架等问题。最后,探究劳动监察的制度设计及其完善路径。了解全球化背景下劳动监察制度的发展态势及其对我国的影响,探讨我国劳动监察制度的发展理路及现存问题,并借鉴国际劳动监察制度的相关规定,依据我国国情,提出从劳动争议多元解决机制层面和劳资和谐两个角度完善劳动监察制度。本文认为,全球化及科学技术发展促使劳动监察制度呈现出新的发展和变化,劳动监察已成为社会治理的工具。对我国而言,顺应国际劳动监察制度的发展趋势,必须完善劳动监察法制体系、转变执法理念、强化执法干预等。我国劳动监察制度的发展逆向于西方工业化国家的发展路径,所以在进行制度设计及完善时必须将其置于我国经济、政治和社会发展的现实土壤。平衡劳资利益、缓和劳资冲突、实现劳资和谐,这些因素都应成为完善劳动监察制度的应有之意。更多还原

【Abstract】 Labor inspection, as an enforcement act to safeguard the legitimate rights and interests of laborers, plays an important role in the legal mechanism to adjust the labor relations, and also bears the national responsibility of "bottom line control" of labor rights. Currently, the labor relationship in China is faced with the dual impact of social transformation and globalization, as well as "racing to the bottom" in working conditions and labor interests via limited employment opportunities and flow of capital to pursue maximum profit. The increasingly striking conflict of laborer and employer is not conductive to the sustainable development and the stability of society and economy. It is urgent to re-examine the labor inspection system, namely how to effectively protect those workers who are in weakened position in the labor relations.Labor inspection is an administrative act by the operation department of labor law. Research on labor inspection from the perspective of administrative law shall pay more attention to the research of administrative law with its own characteristics, combined with the fruits of the labor law. The core of this perspective is labor inspection and control, while the core of labor inspection and control is the power of labor inspection.In terms of the deconstruction and regulation of the labor inspection power, the goal involves the following parts:by the deconstruction of the power of labor inspection, it aims to provide the theoretical basis and system design for the state to fulfill their obligations to protect the rights and interests of workers and guide the construction of the labor inspection system; it will give a further research into the positive and negative factors which influence the functions of labor inspection, in order to make the labor inspection be a real guard for human rights and social justice, and thus to achieve the harmony between laborer and employer and also social harmony. The following aspects are required to be probed into.Firstly, the nature and range of the power of labor inspection power shall be defined. The inherent attribute of labor relationship determines its nature as a public law. Labor inspection power refers to the administrative enforcement right of public power to adjust certain labor relationship. Its legal intervention and respect to contract are basic principle of the labor inspection power conducted by related departments. The intervention into labor relationship bases on compulsory law regulations with the core of labor standard, as well as the private right autonomy in non-compulsory labor law. Labor inspection, arbitration and litigation have their respective power borders. The definition of the necessity and legitimacy of labor inspection power provides the theoretical basis for power definition to improve the labor inspection system.Secondly, the paper clarifies the function positioning and effect of the labor inspection power. This requires a lens from the inner mechanism and logic, and an exploration of the labor inspection power, both in theory and practice, as well as the factors affecting its function. Analysis of the function of the labor inspection power depends on two aspects:one is to look at the historical evolution of labor inspection system; the second is to unveil the relationship between social change and the labor inspection. The starting point and final enforcement of labor inspection’s function shall be positioned to safeguard the legitimate rights and interests of workers. Whether to realize the regulation of labor interests belongs to the judgment of intrinsic value of the labor inspection power. In reality, the labor inspection right integrates protection of right and dispute-resolving by labor unions. To clarify the function positioning and effect could help define the purpose and function of the labor inspection power.Furthermore, this paper analyzes the legal operation and regulation of the labor inspection power. It elaborates on the value in labor inspection, power subjects, allocation of power, and control of power, etc. Thus, it argues that the operation and regulation of the labor inspection power refer to the control of power, the realization of procedural justice, introduction of democracy and public consolation, involvement and inspection of stakeholders and executives. The theory of law and governance provides a rewarding insight to resolve such sorts of problems. Discussion on the legal operation of the labor inspection power shall focus on the subject, the path and the frame of power.Finally, this paper probes into the design and improvement of labor inspection system. It explores further the tendency of the labor inspection system within the global context as well as its influence upon China; discusses the frame and problems of the labor inspection in China; learns from relevant regulations of international labor inspection system and puts up forward how to improve the labor inspection system from two perspectives-poly-basic resolving scheme for disputes and harmony between laborer and payment. The paper holds that globalization and the development of science and technology prompted new changes in the labor inspection system and it has become a tool to govern the society. As to China, in order to comply with the tendency of international labor inspection system, the system shall be promoted, the concept in enforcement shall be transformed and the intervention in enforcement shall be further intensified. The development of the labor inspection system in China is opposite to the way abroad. Therefore, the design and improvement of the system should reckon with the realistic context of the economic, political and social conditions in China. All the factors, including balancing the benefits of laborer and employer, mitigate their conflicts, and realize the harmony, are the key to the improvement of the labor inspection system.更多还原