中國大陸行政程序法制化之研究

A Research on the Legislation of Administrative Procedure in Mainland China

賴柷宏(Chu-hung Lai)

指導教授 ： 朱武獻

國立臺灣大學/社會科學院/國家發展研究所/碩士(2007年)

https://doi.org/10.6342/NTU.2007.01513

摘要

據悉，中華人民共和國第十屆全國人大常委會已將制定行政程序法列入立法規劃中，並由法制工作委員會就專家學者所提交的行政程序法草案進行研議、徵詢各方意見，由此可見行政程序法制化的構想已初步獲得中國最高立法機關的重視與認同。若日後行政程序法順利完成立法、頒布施行，勢必對中國政府部門產生很大的衝擊，毋寧是中國新一波變革的開始，亦是中國推進政治民主化的一線契機，值得吾人關注。是故，筆者擬從歷史研究途徑與法學研究途徑，探究中國大陸行政程序法制化的相關問題。

本論文共分為七章，茲就各章重點扼要說明如下：第一章主要係說明本研究的目的、方法、範圍以及概念的界定等，以及進行相關文獻與理論的探討，然後勾勒出本論文的研究架構。第二章主要係探討現代行政程序法的法理基礎，以之作為後續幾章的立論根據。第三章則是先探究催動中國大陸行政程序法制化的內部因素與外部因素，再從歷史的脈絡窺視中國大陸行政程序法制的發展進程。接著，分別從法規範的形式與實質內容兩大層面，研析中國大陸行政程序法制的現況，之後探討中國推動行政程序法制化所面臨的現實問題。第四章主要是針對中國行政法學者所研擬的行政程序法草案，從宏觀的角度剖析該部草案的立法設計。第五章係以《行政許可法》為例，評析行政許可程序的建制，另從應然的觀點檢視其對政府職能的影響，再加以探討《行政許可法》所面臨的困境。第六章則採用比較研究法，分析海峽兩岸行政程序法立法的差異，特別著重在立法背景、立法過程和立法設計上的比較。最後一章則是本研究的發現與對於後續相關研究的建議。

隨著經濟全球化時代的來臨，加上中國大陸正面臨經濟體制轉型的挑戰，行政程序法制化將有助於建立市場經濟運行的「遊戲規則」，進而改變行政管理模式、調整政府職能，使得行政部門及其工作人員必須恪守依法行政原則。然而，中共以黨領政、黨政不分的政治運作模式仍是推動行政程序法制化必須先克服的難題，唯有黨政分離，消除國家權力過度集中的現象，建立權力制衡的機制，方能使行政程序法發揮應有的功能。

關鍵字

行政程序法 ； 行政程序法制化 ； 行政改革 ； 行政許可法 ； 依法行政 ； 政府職能 ； 經濟轉型

並列摘要

Allegedly, the tenth Standing Committee of the National People's Congress, P.R.C. has included legislating administrative procedure in the legislation plans and engaged into the study on the law draft proposed by the professionals and scholars from the legislation committee. This shows that the idea of legislating administrative procedure has been adopted and valued by the highest legislature of China. If this legislation processes successfully and is enacted, it’s going to create a huge impact on the China government as another revolution begins whereas it gives a bright sign to the China government to move forward to democratization. This issue should deserve more concern and attention. I have investigated on the relevant problems involved with legislating administrative procedure in Mainland China by studying both on historical and legal facts.

This thesis is divided into seven chapters, and the main idea of each chapter is summarized as following: Chapter one is centered on the definition of purpose, approach, extent and concept as well as the discussion of related documents and theories then further to draw the study outline of this thesis. Chapter two focuses on the legal foundation of modern Administrative Procedure Law as the basic introduction for the next chapters. Chapter three discusses about the external and internal factors that motivate Mainland China to legislate administrative procedure and proceeds to review the development process of related legislations based on historical evidences. Next, it continues to analyze the current situation of the legislation of administrative procedure in Mainland China from two aspects in the form and the content of laws. What connects next is the discussion of the realistic problems Mainland China faces when they try to proceed this legislation. Chapter four offers grand views to dissect the legislation draft designed by China juristic scholars and professionals. Chapter five takes Administrative Permission Law for example to comment on its own system and foundation while inspecting its influence on the government functions from technical perspectives. Also it emphasizes on the plight the Administrative Permission Law faces. Chapter six adopts the comparative study method to analyze the legislation difference between both sides of the Taiwan Strait, especially stressing on the comparison of the process and design of legislation. The last chapter offers suggestions to further related studies and presents discoveries after the research.

As the age of economic globalization arrives and the challenge of transformation of economic system falls upon Mainland China, Administrative Procedure Law is helpful for setting up rules to operate economic markets. Moreover, it can change the administrative management mode and adjust government functions, which forces the administrative staff to obey the disciplines and follow along. However, the Chinese Communist Party’s single-party government ruling is the major difficulty to push the legislation of administrative procedure ahead, and this problem must be solved in the first place. The only way to make this law serve on its own right is when the government administration and the party separate as to diminish the over-central authority in the nation and establish the system to balance the power. In this way, the Administrative Procedure Law can function to its most potential.

並列關鍵字

the Administrative Procedure Law ； the legislation of Administrative Procedure ； administration revolution ； the Administrative Permission Law ； legal administration ； government functions ； economic transformation

參考文獻

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