论代议机关对行政权的监控——加强和完善我国人民代表大会对行政机关的监督研究

【作者】 唐晓斌；

【导师】 文正邦；

【作者基本信息】 西南政法大学 ， 宪法学与行政法学， 2003， 硕士

【摘要】 本论文分为上、中、下三篇，上篇：代议机关对行政权监控的基本原理、中篇：代议机关对行政权监控的比较研究、下篇：加强和完善我国人民代表大会对行政机关监督之思考。每篇包括两部分，全文共六大部分：导论；宪政根据论；宏观比较研究；微观比较研究；我国人民代表大会对行政机关监督现状分析；加强和完善我国人民代表大会对行政机关监督的制度重构与创新。 一、“导论”部分，论述了两个方面的问题：代议机关对行政权监控关系之探讨、代议机关对行政权监控综合分析。 在第一个问题中，作者以马克思主义哲学有关主客体理论为指导，从代议机关对行政权的监控关系切入论题，论述了监控主体、监控对象、监控客体。 在结构理论的指导下，论证并确立了代议机关、议院、代议机关委员会、议员、新型代议机关结构、代议机关与其它独立的国家机关权力混合而形成新的主体的监控主体资格。议院以一院单独或两院联合方式行使监控权力。代议机关委员会的监控权力主要来源于宪法、法律或国会授权，专家权威，政党的操纵，选民和利益集团。议员以接受选民申诉和请愿，对政府提出建议、批评和意见等多种形式监控行政权。代议机关和其它国家机关的权力混合，并相应地分别和这些机关构成新型监控主体。代议机关有五种类型即三权平行型代议机关、立法优越型代议机关、行政优越型代议机关、委员会制代议机关、议行合一制代议机关。 监控对象包括行政机关和经授权从事行政公务的行政机构、公务组织、社会组织等行政组织，以及行政公务人员、行政机关和其它机关权力混合而形成一类新的监控对象。 监控客体包括行政权、行政权行使行为、行政权行使行为之外的其它某些行为、监控对象的思维活动。必须从对象范围、客体范围、手段范围、资源范围四个方面认识和监控行政权;行政权行使行为包括行政行为和事实行为;监控对象行使行政权行为以外的其它一些行为也应纳入监控客体的范围内;监控对象的思维活动包括道德品质、政治思想素质、政策策略。 第二个问题论述了代议机关对行政机关的监控具有阶级性和社会性;代议机关对行政权的监控具有主体权威性、客体广泛性和全方位性、监控形式的多样性、监控与选举制度和政党制度联系的密切性、民主性五个方面的特征;代议机关对行政权的监控有多种分类:(1)单独监控和共同监控;(2)直接监控和间接监控;(3)单向监控、双向监控和循环监控;(4)分权、授权、指导和监督;(5)宏观监控和微观监控;(6)显性监控和隐性监控;(7)法定监控和非法定监控;(8)软性监控和硬性监控;(9)资本主义监控和社会主义监控;(10)以监控手段为标准对之进行的分类。 二、“宪政根据论”部分，阐明了代议机关对行政权的监控有民主政府、法论政府、责任政府，有限政府四个宪政根据。行政权来源于、服务于人民，必须接受人民的监控，必须以公民权利和其它国家权力为界限。代议机关对行政权的监控是民主的体现和要求，是法治的当然内容和重要保障，是维持和追究政府责任的宪政机制，是划定并保持行政权界限的宪政标尺。 三、“宏观比较研究”部分，就代议机关对行政权监控的理论基础和特征进行了比较。资本主义国家代议机关对行政权监控的理论基础是分权制衡，分权有四层含义，制衡与分权相对应。社会主义国家代议机关对行政权监控的理论基础是议行合一。不同类型的代议机关之间对行政权监控的特点、区别十分明显，同类代议机关对行政权监控的总体特点相似，但也不尽一致。 四、“微观比较研究”部分，就代议机关监控行政权产生、行政组织、行政人事、行政财政、行政二级立法以及代议机关监控行政权的方式进行了比较。代议机关在行政权抽象产生和具体产生两个环节中的作用不同;代议机关亲自行使重大的行政组织权，授权行政机关行使重要性较次的行政组织权，把不重要的行政组织权交行政机关行使，保持事后监督之权;代议机关以任命、弹勤等方式对行政首脑和其它政府组成人员进行监控;代议机关审查和批准行政财政预决算，监督预算的执行，以授权法等方式监控行政二级立法;代议机关对行政权的监控有调查、质询、同意、信任案、弹勤案、罢免、请愿等监控方式。 五、“我国人民代表大会对行政机关监督现状分析”部分，分析了人大代表和全国人民代表大会组织机构等组织要素及它们之间的关系，人大监督功能、监督权力、监督方式、监督法制。代表地位、素质不高，代表结构不合理，代表权利太寡，与代表义务失衡。全国人民代表大会组织不全，没有专门监督委员会、机动委员会等委员会。人大内部组织要素间的关系没有理顺，规章制度不健全。人民代表大会功能不全、功能缺失、功能失调、功能没得到最大释放，它对行政机关监督的权限具有最高性、根本性、全面性、综合哇的特点，但各项权力还未完全落实到位。监督方式体系不科学，有的监督方式没有运用，有的监督方式可操作性差。人民代表大会对行政机关的监督立法粗、散、残、滞后、形式主义化，监督法制运行?更多还原

【Abstract】 This magisterial dissertation is divided into three pieces, the top:fundamentals of regulation from congress over administration;the medial:comparative researches on regulation .from congress over administration;the bottom: speculation upon strengthening and improving superintendence from the people’ s congress of our state over administration. Every piece of this thesis include two parts, amount to six parts: (1) leading theories; (2) theories of constitutional grounds; ( 3 ) macroscopically comparative studies; ( 4 ) microscopically comparative studies; (5) analyses and evaluation for supervisory circumstances of the people’ s congress to administration; (6) institutional reconstruction and innovation in strengthening and bettering supervision from the people’ s congress over administration.First part:Under the direction of Marxist philosophy relevant to subject and object,student of this treatise detailedly expounding such regulative subject’ s qualification aschambers comnittees of congress and congressmen neo-constitution congress new pattern of subject, expounding such regulative object’ s qualification as the executive bodies empowered engaging in administrative affairs administrative servant new type of object. Administrative power actions executing administrative power and some other acts of regulative object thinking of regulative object are in the scope of regulative object. We realizing and dominating administrative power at these four aspects of it’ s realm of objects it’ s ground of objects it’ s scope of levers and it’ s limits of resources. Superintendence and command from congress over administration has class nature and social characteristic. Superintendent and regulative subjects have authoritative quality, objects are wildspread, Superintendent and regulative controls are variform, Supervision and regulation has close connection with electoral and political party system. Separating regulation ten patterns as following: (1) single regulation and coactive regulation; (2)direct regulation and indirect regulation; (3) unidirectional regulation two-way regulation circulative regulation; (4) separation of powers warrant of powers surveillance; (5)macroscopical regulation microscopical regulation; (6)dcminant regjlaticn recessive regulation; (7)legal regulation illegal regulation; (8) flexible regulation inflexible regulation; (9) capitalistic regjlaticn socialistic regjlaticn; (10) classification according to regulative demarche.Second.part:In this part, the student point out that the constitutional grounds of supervision and regulation from congress over administration are democratic government government firstly ruled by then ruling on the basis of law responsible gpvemment and finite goverrnent. Administrative power of representative government is root in and serve the people. That instituting a democratic government in line with the consent of holder of sovereignty. The purpose of instituting a government is protect the interests of holder of sovereignty. The executive’ s Powers must reconcile to it’ s responsibilities, must undertake responsibility while violating law. Human rights and other state powers are the demarcation of administrative power, human rights is radical one and other state powers is important one.Third part: In this part, the student hold that separation of powers and Checks and balances is the basic theory of capitalistic regulation, separation of powers have four tiers meanings , Checks and balances is corresponding to separation of powers . Two as decision and action combined into one is the basic theory of socialistic regulation. The same pattern of congress have the same pattern of characteristic at the supervision and regulation, but exist subtle disparities among them. On- the contrary, the different pattern of congress have the different pattern of characteristic at the supervision and regulation. Fourth part: Inthispart, the student focus on the superintendence to creation of administrative power, on the s更多还原