【作者】 张立先；

【导师】 肖金明；

【作者基本信息】 山东大学 ， 宪法学与行政法学， 2012， 博士

【摘要】 金融业是特殊的高风险领域,因金融脆弱性导致的金融突发事件仅靠市场自我调整与金融机构自救是无法应对的,政府行使行政紧急权力、进行金融应急管理,能够有效应对金融突发事件给社会经济和公民基本权利造成的冲击和危害。但政府金融应急管理也存在问题。在金融应急管理领域,行政机关具有超常强大而集中的紧急权力,可能突破行政法治的框架。如果行政机关应对金融危机过程大肆扩张紧急权力、压迫公民基本权利的空间,将使得人民受到两方面的权益伤害：一种是突发事件本身造成的、直接的利益损害；另一种是由于政府在金融应急管理中的缺位、错位、越位以及权力的无限制膨胀所造成的、间接的利益损害。因此,需要为金融应急管理提供一种合法的规制框架,同时矫正市场失灵和政府失灵的双重问题,在保证紧急权力有效应对金融突发事件,尽快恢复金融法定秩序的同时,又防止其恣意和过度膨胀,危害公民基本权利。这也是行政法治的核心价值所在。法律规制相对于其他规制方式而言具有独特的优势。法律规制的核心在于从法治理念出发,运用法律对行政权力进行控制,行政权力必须服从法律的规制,对金融应急管理的法律规制,主要通过法律生成金融应急管理的体制、程序和控制机制得以进行。在这一理论背景下,本文借助实证分析和比较分析的方法,在厘清金融应急管理的法律规制基本理论的基础上,将金融应急管理置于行政法治、应急管理和公共行政的视角下予以研究,重点研究域外金融应急管理法律规制的体制理论、程序理论及控制理论,通过借鉴域外成功经验,结合我国金融应急管理法律规制的实践需求,尝试在合理的理论基础上构建我国金融应急管理的法律体系。全文由导论、正文和结语构成,其中,正文分为八章。第一章,金融应急管理法律规制的基本概念。本文认为,金融应急管理是指政府为保障公众基本财产权利,稳定金融秩序,采取的对金融突发事件事前预防、事中应对处置和事后善后恢复等一系列处置措施的总称。而金融应急管理的法律规制是指在法治框架下,通过生成法律体制、法律程序和法律监督,对金融应急管理行为进行的规范、控制和监督等活动。用法律对金融应急管理进行规制,是由于对权力本身的特性以及法律相对于其他控制方式而言所具有的优势所决定的,可以有效制约金融应急管理的失控可能。第二章,金融应急管理法律规制的理论基础。风险社会理论、金融危机理论、盲从心理理论、分权制衡理论和公共失灵理论等是金融应急管理坚实的理论基础。建立金融应急管理法律制度,对金融应急管理进行法律规制,是风险社会的应对之需,是金融危机的逻辑必然,能够引导公众的盲从心理,同时也是对金融应急管理进行分权制衡、防止和矫正公共失灵的应有之义。第三章,金融应急管理法律规制的历史演变。世界各国金融应急管理的法律规制发展历程大致可以划分为初创阶段、逐步完善阶段和新变革阶段等三个阶段。其变迁史中蕴含了金融应急管理法律制度演变的客观规律。第四章,金融应急管理法律规制的基本原则。基本原则是金融应急管理的根本价值所在,统摄着金融应急管理的法律规则。保障投资人和存款人权益原则、依法处置原则、救助成本最低原则、比例原则和公开透明原则构成了金融应急管理的基本原则,成为法律规制的准则性基础。第五章,金融应急管理的法律体制。金融应急管理体制包涵应急管理主体和应急管理权力配置等核心要素。首先,分析了金融应急管理的主体模式,各国金融应急管理主体架构分为机构型模式、功能型模式、综合型模式和双峰型模式等四种,每种模式各有优劣。其次,考察了金融应急管理的权力构成。各国的金融应急管理权力一般包括行政应急立法权、金融宏观调控应急权、行政紧急强制权、行政救助权、行政指导权和行政检查权等；明确的应急权力边界能够有效规制紧急权力的行使,保护公民基本权利。第三,研究了金融应急管理的协调机制,由于金融应急管理主体的多元化特征,各主体之间的协调机制成为金融应急管理的法律规制不可或缺的要素。第六章,金融应急管理的法律程序。作为规制应急管理的最佳工具,金融应急管理的程序包含启动程序、运行程序和终止程序。首先,考察了金融应急管理的启动程序。国外金融应急管理的启动程序包括法定的实体要件以及金融应急状态申请批准、确认、宣布以及应急预案启动等程序要件。其次,分析了金融应急管理的运行程序。运行程序既包括金融应急决策程序制度,也包括应急管理所需遵循的表明身份、办理时限、说明理由和信息公开等一般性程序。最后,分析了金融应急管理的终止程序。金融应急管理终止程序标志着从非常态管理到常态管理的转换,涉及到公民基本权利保障和防止紧急权力滥用等问题,是不可或缺的程序因素。第七章,金融应急管理的法律控制。法律控制机制是对金融应急管理进行法律规制的核心要素,包括立法控制、行政监督和司法审查的“三维”控制制度。首先,各国立法机关通过行政应急立法审查制度、调查制度、质询制度、弹劾制度、不信任案表决等路径对金融应急管理实施立法控制。其次,行政监督是行政机关的一种自我纠错制度,能够有效提升透明度与问责程度,可以及时预防金融应急管理机构滥用权力。最后,各国均建立了对于金融应急管理具体行政行为的司法审查制度,通过赔偿制度对相对人因违法金融应急管理行为而受到的损害进行救济；部分国家还实行司法监督的有限豁免制度,为紧急权力的正当行使提供合理的空间。第八章,我国金融应急管理法律规制的完善。首先,梳理了我国金融应急管理法律制度的现状,并分析了存在的不足之处。其次,提出我国金融应急管理的法律规制应秉承风险预防理念和权力制约理念以及应遵循的原则。再次,研究了我国金融应急管理的立法模式选择和框架体系,提出了完善我国金融应急管理法律制度的建议。最后,在借鉴域外金融应急管理立法经验和结合我国金融应急实践的基础上,草拟了《金融应急管理法》代拟稿,尝试构建我国金融应急管理基本法的框架和主要内容。更多还原

【Abstract】 The finance industry was created a highly risky one. The market self-adjustment and the self-rescue of financial institutions alone are not sufficient when facing financial accidents caused by financial fragilities. However, the emergent administrative power exerted by the government agencies and its resulting financial emergency management are effective means to effectively prevent the shocks and harms on the society, the economy and basic human rights. Similar to market failures, the failure also exits in government financial emergency management. In the area of financial emergency management, the government possesses the greatly concentrated power which easily breaches the constitutional boundary and legal administration framework and thus harming the basic rights of citizens. To guarantee the justified exertion of administrative emergency power, modern legal countries, through the legal regulation of financial emergency management, prevents its over-use and harm on basic citizen rights while dealing effectively with accidents and restoring legal financial orders promptly, which is the core value of legal administration. The legal regulation of financial emergency management lies in the reasonable balance between the boundary of financial emergency management power and that of basic citizen rights protection. Against such a theoretical background, the dissertation, on the basis of the classification of basic theories of financial emergency management, from the perspective of legal administration, emergency management and public administration, applies the empirical and comparative research into system, procedure control and legal supervision system of legal regulation on financial emergency management, and attempts to construct the China-specific institutional framework of legal regulation on financial emergency management through its survey on the status quo of foreign legal regulation on financial emergency management and the drawbacks of our country’s legal regulation。The dissertation consists of introduction, body text and conclusions. The body text is divided into eight chapters. Chapter I The concept Interpretation of legal regulation on financial emergency management. The paper argues that the financial emergency management is the general term of a series of measures, for the protection of public property rights, to stabilize the financial order and take financial emergencies, in advance to prevent things in response to the disposal and the aftermath of recovery. The legal regulation on financial emergency management refers to the specification, control and supervision of financial emergency management activities, under the framework of the rule of law. As the characteristics of legal regulation, and the advantage of power relative to other control methods, the legal regulation can effectively restrict the financial emergency management out of control.Chapter II The theoretical basis of the legal regulation on financial emergency management. Risk society theory, the theory of financial crisis, the blind obedience of psychological theory, the theory of separation of powers and public failure theory are the solid theoretical foundation of the financial emergency management. Establishment of a financial emergency management legal system is the needs of risk society and the logic result of the financial crisis, which can guide the public to follow blindly psychological separation, balance financial emergency management prevent and redress the public failure.Chapter III The historic evolution of the legal regulation on financial emergency management. The development processes of emergency management regulations in the world can be roughly divided into the start-up stage, the improving stage and the transformation stage. The historic evolution contains the objective laws and basic concepts of the legal regulation system evolution on financial emergency management.Chapter IV The basic principles of legal regulation on financial emergency management。The basic principles of being legal, human rights guarantee, fair ratio, efficiency and transparency are the basic nature and value of legal regulation on financial emergency management, which are the ever-lasting, ever-effective bases of the make-up and application of legal regulation on financial emergency management.Chapter V The system on the legal regulation on financial emergency management。The legal regulation system on financial emergency management includes the double key elements of emergency management bodies and emergency management power boundary and measures, where the former can be classified into the institutional, functional, comprehensive and the two-peak modes and the latter demands the adjustment mechanism among bodies which can be classified into emergent macro financial control polices, emergent administrative obligation, administrative rescue, administrative guidance and inspection according to their legal endowments. Thus, the clear emergent measures help define the boundary of emergent powers and protect the basic citizen rights.Chapter VI The legal regulation procedure on financial emergency management. As the optimal regulatory tool on emergency management, legal regulation procedure on financial emergency management includes the start procedure, the operation procedure and termination procedure, while the start procedure includes the legal body itself and such procedure elements as application for permission, confirmation, declaration and the start of emergency schemes, operation procedure includes both financial emergency decision-making procedure system and such usual emergent-measures-abiding procedures as identity declaration, implementation time limit, reasons justification and information publicizing, and the termination procedure symbolizes the legal standards transfer from emergency management to regular management and is a necessary procedure element relevant to the basic citizen rights guarantee and the prevention of the abuse of emergency power. The procedure control over financial emergency management helps realize the self-adjustment of financial emergency power though legal procedure supervision.Chapter VII The legal supervision over financial emergency management. Legal supervision is the core element of legal regulation on financial emergency management, including the tri-super system over legislation body, administrative body and executive body. First, the legislation body executes its supervision on financial emergency management through administrative emergency legislation system of inspection, investigation, consultation, accusation and distrust veto. Secondly, administrative supervision is an auto error-correction system of administrative agencies which prevents voluntarily the abuse of emergency powers of financial emergency management bodies and elevates effectively transparency and the accusation system. Finally, as far as the specific administrative acts of financial emergency management are concerned, countries have commonly established their judicial supervision system and take the compensation system as its accessible path. In order to maintain the justified execution of emergency power, countries should also establish the limited exemption system under judicial supervision.Chapter VIII The perfection of the legal regulation on financial emergency management of China. First, it outlines the legislation system of our country’s emergency management, its main contents and analyzes its existing drawbacks. Secondly, it forwards the proposal for the perfection of the legal regulation of financial emergency management of our country. Finally, it analyzes the legislation mode choice and abiding principles of our country’s financial emergency legal system, forwards the perfection proposals for our country’s financial emergency management system, drafts the Rules for the Response to Financial Emergent Accidents based on its survey over foreign legal regulation on financial emergency management and the status of our country’s relevant issues, and attempts to construct the basic legal framework and main contents for our country’s financial emergency management.更多还原