中国信访制度的规范化研究
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摘要
信访制度具有浓厚的中国特色,从其产生到现在已经历了大约半个多世纪。在这期间,它曾经发挥了十分重要的历史作用。但是,在近几年的社会管理中,信访制度却遭遇了前所未有的尴尬和挑战。一次又一次的信访洪峰不断地提醒社会重新审视这一中国特有的制度,是取消?是修改?一场又一场的争论使这一制度的变革成为必然。2005年5月,国务院颁布了新的《信访条例》,新条例的出现让人们重新看到了一线希望,也重新掀起了讨论信访制度的热潮。本文尝试以信访制度的规范化研究为主线,在对我国信访制度的基本理论和现状进行考察的基础上,对信访制度的模式选择进行系统归纳与深入分析,将信访制度建立在集中统一模式上,对现有的信访资源进行必要的整合,使其在构建和谐社会的历史进程中发挥应有的作用。本文共分为五个部分:
第一部分是中国信访制度的基本理论。首先归纳了信访制度的概念,信访制度是公民、法人和其他组织采用法定形式向各级政府及相关部门提出相应请求,依法应当由有关机关处理并由被信访人作出响应的互动行为过程中所形成的法律制度。进而从信访主体、信访内容、形式及效力等方面总结了信访制度的特征。最后论述了信访制度的功能和意义,充分肯定了信访制度在公民参与政治,表达权益和实行监督等方面所发挥的重要作用。
第二部分是中国信访制度的现实基础。该部分阐述了信访制度得以存在的宪法基础、文化基础和社会基础。首先,从法源上找到了宪法依
The inquiry system has the thick Chinese characteristic, produced from it to the present has experienced the about for more than half centuries. In this period, it has once played the extremely important historical role. But, in recent years social management, the inquiry system encountered actually unprecedented has been awkward and the challenge. The time and time again inquiry flood peak reminds the society to carefully examine this Chinese unique system unceasingly, is the cancellation? Is the revision? An argument causes this system the transformation into inevitably. In May, 2005, the State Council promulgated has been new "Inquiry Rule", the new rule appearance let the people see a ray of hope, also has raised the discussion inquiry system upsurge. This article attempts take the inquiry system standardized research as a master line, in carries on the inspection to the our country inquiry system elementary theory and the present situation in the foundation, carries on the system induction and the thorough analysis to the inquiry system pattern choice, the inquiry system establishment in the centralism unified pattern, carries on to the existing inquiry resources the essential conformity, causes it in to construct the function which harmonious social in the historic course the display should have.This article altogether divides into five parts:The first part is the Chinese inquiry system elementary theory. First has
induced the inquiry system concept, pointed out the inquiry system is the citizen, the legal person and other organizations uses the legal form to all levels of governments and the correlation department proposed the corresponding request, must legally by related institution processing and by the inquiry person is made the legal system which the response in the interaction behavior process forms. Then from aspect and so on inquiry main body, inquiry content, form and potency summarized the inquiry system characteristic. Finally elaborated the inquiry system function and the significance, the full affirmation inquiry system participated in politics in the citizen, the vital role which aspect and so on expression rights and interests and implementation surveillance displays.The second part is the Chinese inquiry system realistic foundation. This part elaborated the inquiry system can exist constitution foundation, cultural base and social basis. First, had found the constitution basis from the law origin, through to the people's sovereignty principle and the citizen basic right principle explanation, obtains the inquiry is our country people basic right realization lawful means. Next, from the cultural angle understood China in 5000 the history the influence which produces in the people thought deep place, but "the honest official realizes" is miniature. Finally, the inquiry system existence has the deep social realistic foundation, it likes a social safety valve under the specific historical condition, alleviated the certain society to be contradictory.
The third part is the Chinese inquiry system historical inspection. This part elaborated from the ancient times and the modern two surface the inquiry system produces the historical background, the development condition and then inquiry form, promulgated the Chinese inquiry system own some laws of development.The fourth part is outside the territory the related system model, mainly introduced Japanese, English, French, Sweden and the Chinese Hong Kong, the Chinese Taiwan correlation system development condition.The fifth part is the Chinese inquiry system and its the pattern. This part bases the current inquiry system basic situation, the main goal is thoroughly analyzes and discusses its new pattern choice. First, newly promulgates the implementation take the State Council "Inquiry Rule" as the main source, through to our country content and so on inquiry basic principle, basic system, fundamental mode combing, has a clear mentality by the time realization to the current inquiry system development vein. Next has made the summary to the inquiry system main question from the system design and the influence factor two aspects. From politics, the economy, the culture, the government by law four aspects thoroughly analyzes our country current inquiry problem formulation once more the reason. Finally in the establishment inquiry legal status, in the conformity existing inquiry system resources foundation, proposed legislates through the unification and sets up the specialized agency to establish one kind of standardized pattern.
In brief, this article through to the Chinese inquiry system omni-directional analysis, makes every effort to choose the reasonable pattern to consummate our country the inquiry system, impels it to step onto standardized the path.
第一部分是中国信访制度的基本理论。首先归纳了信访制度的概念,信访制度是公民、法人和其他组织采用法定形式向各级政府及相关部门提出相应请求,依法应当由有关机关处理并由被信访人作出响应的互动行为过程中所形成的法律制度。进而从信访主体、信访内容、形式及效力等方面总结了信访制度的特征。最后论述了信访制度的功能和意义,充分肯定了信访制度在公民参与政治,表达权益和实行监督等方面所发挥的重要作用。
第二部分是中国信访制度的现实基础。该部分阐述了信访制度得以存在的宪法基础、文化基础和社会基础。首先,从法源上找到了宪法依
The inquiry system has the thick Chinese characteristic, produced from it to the present has experienced the about for more than half centuries. In this period, it has once played the extremely important historical role. But, in recent years social management, the inquiry system encountered actually unprecedented has been awkward and the challenge. The time and time again inquiry flood peak reminds the society to carefully examine this Chinese unique system unceasingly, is the cancellation? Is the revision? An argument causes this system the transformation into inevitably. In May, 2005, the State Council promulgated has been new "Inquiry Rule", the new rule appearance let the people see a ray of hope, also has raised the discussion inquiry system upsurge. This article attempts take the inquiry system standardized research as a master line, in carries on the inspection to the our country inquiry system elementary theory and the present situation in the foundation, carries on the system induction and the thorough analysis to the inquiry system pattern choice, the inquiry system establishment in the centralism unified pattern, carries on to the existing inquiry resources the essential conformity, causes it in to construct the function which harmonious social in the historic course the display should have.This article altogether divides into five parts:The first part is the Chinese inquiry system elementary theory. First has
induced the inquiry system concept, pointed out the inquiry system is the citizen, the legal person and other organizations uses the legal form to all levels of governments and the correlation department proposed the corresponding request, must legally by related institution processing and by the inquiry person is made the legal system which the response in the interaction behavior process forms. Then from aspect and so on inquiry main body, inquiry content, form and potency summarized the inquiry system characteristic. Finally elaborated the inquiry system function and the significance, the full affirmation inquiry system participated in politics in the citizen, the vital role which aspect and so on expression rights and interests and implementation surveillance displays.The second part is the Chinese inquiry system realistic foundation. This part elaborated the inquiry system can exist constitution foundation, cultural base and social basis. First, had found the constitution basis from the law origin, through to the people's sovereignty principle and the citizen basic right principle explanation, obtains the inquiry is our country people basic right realization lawful means. Next, from the cultural angle understood China in 5000 the history the influence which produces in the people thought deep place, but "the honest official realizes" is miniature. Finally, the inquiry system existence has the deep social realistic foundation, it likes a social safety valve under the specific historical condition, alleviated the certain society to be contradictory.
The third part is the Chinese inquiry system historical inspection. This part elaborated from the ancient times and the modern two surface the inquiry system produces the historical background, the development condition and then inquiry form, promulgated the Chinese inquiry system own some laws of development.The fourth part is outside the territory the related system model, mainly introduced Japanese, English, French, Sweden and the Chinese Hong Kong, the Chinese Taiwan correlation system development condition.The fifth part is the Chinese inquiry system and its the pattern. This part bases the current inquiry system basic situation, the main goal is thoroughly analyzes and discusses its new pattern choice. First, newly promulgates the implementation take the State Council "Inquiry Rule" as the main source, through to our country content and so on inquiry basic principle, basic system, fundamental mode combing, has a clear mentality by the time realization to the current inquiry system development vein. Next has made the summary to the inquiry system main question from the system design and the influence factor two aspects. From politics, the economy, the culture, the government by law four aspects thoroughly analyzes our country current inquiry problem formulation once more the reason. Finally in the establishment inquiry legal status, in the conformity existing inquiry system resources foundation, proposed legislates through the unification and sets up the specialized agency to establish one kind of standardized pattern.
In brief, this article through to the Chinese inquiry system omni-directional analysis, makes every effort to choose the reasonable pattern to consummate our country the inquiry system, impels it to step onto standardized the path.
引文
[1] 陈晋胜.群体性事件研究报告[M].北京:群众出版社,2004.
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[4] 陈柏峰.缠讼、信访与新中国法律传统——法律转型时期的缠讼问题[J].中外法学.2004,(2).
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[7] 董炯.国家、公民与行政法[M].北京:北京大学出版社,2001.126.
[8] 李俊.社会安全阀理论与信访制度[J].广西社会科学.2002,(4).
[9] 王雪莲.从维护社会稳定看信访制度创新[J].中国人民公安大学学报.2004,(4).39.
[10] 汤唯、孙季萍.法律监督论纲[M].北京:北京大学出版社,2001.18.
[11] 荣任星、钟敏.政坛永恒的话题——民主监督[M].北京:法律出版社,1998.3.
[12] 朱维究.政府法制监督论——社会主义市场经济体制下的政府监督机制[M].北京:中国政法法学出版社,1994.447。
[13] [美]埃尔斯特.潘勤译.宪政与民主:理性与社会变迁研究[M].上海:三联书店出版社,1997.114.
[14] 中共中央办公厅信访局、国务院办公厅信访局.中国信访写真[M].北京:中国工人出版社,1998.10.
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[19] 许崇德.宪法[M].北京:中国人民大学出版社,1999.140.
[20] 应星.大河移民上访的故事[M].北京:三联书店出版社,2001.209.
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[22] 马作武.中国古代法律文化[M].广州:暨南大学出版社,1985.164.
[23] 胡中才.古代“信访”史话[M].武汉:湖北人民出版社,2000.
[24] 皮纯协、潘祜周、王英昌.中外监察制度简史[M].郑州:中州古籍出版社,1991.25.
[25] 刁杰成.人民信访史略[M].北京:北京经济学院出版社,1996.
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[27] 毛泽东.毛泽东选集(第5卷)[M].北京:人民出版社,1977.72.
[28] 周占顺.认真贯彻“三个代表”的重要思想努力开创新世纪信访工作新局面[J].人民信访,2001,(10).
[29] 王亚美、陈晋胜.中国信访制度的回顾与展望[J].山西农业大学学报,2006,(3).
[30] [日]盐野宏.杨建顺译.行政法[M].北京:法律出版社,1999.292-295.
[31] 张正钊、韩大元.比较行政法[M].北京:中国人民大学出版社,1998.677-681.
[32] 王名扬.法国行政法[M].北京:中国政法大学出版社,1988.541-548.
[33] 胡冰.国外民愿表达机制与我国信访体制的改革[J].特区理论与实践,2003,(12):60.
[34] 王名扬.英国行政法[M].北京:中国政法大学出版社,1987.251-264.
[35] 徐东.台湾地区陈情制度介评暨其与大陆信访制度之比较[J].台湾法研究学刊,2002,(1).
[36] 中国行政管理学会信访分会.信访学概论[M].北京:中国方正出版社,2005
[37] 于建嵘.信访的制度性缺失及其政治后果[J].凤凰周刊,2004,(32):50-53.
[38] 赵东辉.信访的体制瓶颈亟待突破让民意顺畅上达[J].瞭望新闻周刊,2003,(40):23-25.
[39] 张军.信访正承受不能承受之重[J].民情与信访,2003,(5):47.
[40] 陈晋胜、王鹏跃.群体性事件政治成因分析[J].山西大学学报,2003,(2):102-103.
[41] 陈晋胜、张涛.群体性事件经济成因分析[J].山西大学学报,2004,(1):55-56.
[42] 陈晋胜、安明贤、王俊海.群体性事件文化成因分析[J].理论探索,2005,(6).
[43] 罗豪才.现代行政法制的发展趋势[M].北京:法律出版社,2004.4.
[44] 陈晋胜、介新玲.群体性事件法治成因分析[J].山西大学学 报,2003,(4):34-36.
[45] 于建嵘.中国信访制度批判[J].中国改革,2005,(2):26-28.
[46] 陈晋胜、王亚美.新《信访条例》亮点与缺憾[J].经济师,2006,(7).
[47] 林伯海.人民代表大会监督制度的分析与构建[M].北京:中国社会科学出版社,2004.370-373.
[48] 冀刚毅.建议将制定国家信访法纳入立法规划[J].人大研究,2004,(2).
[49] 田文利.信访制度改革的理论分析和模式选择[J].http://www.calaw.cn.
[50] 应星.作为特殊行政救济的信访救济[J].法学研究,2004,(3):70-71.
[2] [德]马克斯·韦伯.论经济与社会中的法律[M].北京:中国大百科全书出版社,1998.44.
[3] 李慕洁.应用信访学[M].北京:华龄出版社,1991.39.
[4] 陈柏峰.缠讼、信访与新中国法律传统——法律转型时期的缠讼问题[J].中外法学.2004,(2).
[5] 王勇飞.中国行政监督机制[M].北京:中国方正出版社,1998.20.
[6] 粱官.信访常识[M].北京:学苑出版社,1990.17.
[7] 董炯.国家、公民与行政法[M].北京:北京大学出版社,2001.126.
[8] 李俊.社会安全阀理论与信访制度[J].广西社会科学.2002,(4).
[9] 王雪莲.从维护社会稳定看信访制度创新[J].中国人民公安大学学报.2004,(4).39.
[10] 汤唯、孙季萍.法律监督论纲[M].北京:北京大学出版社,2001.18.
[11] 荣任星、钟敏.政坛永恒的话题——民主监督[M].北京:法律出版社,1998.3.
[12] 朱维究.政府法制监督论——社会主义市场经济体制下的政府监督机制[M].北京:中国政法法学出版社,1994.447。
[13] [美]埃尔斯特.潘勤译.宪政与民主:理性与社会变迁研究[M].上海:三联书店出版社,1997.114.
[14] 中共中央办公厅信访局、国务院办公厅信访局.中国信访写真[M].北京:中国工人出版社,1998.10.
[15] Bernard Schwartz. Administrative Law[M]. Little Brown and Company Boston Toronto, 1976. 235.
[16] [英]霍布斯.黎思复、黎廷弼译.利维坦[M].北京:商务出版社,1985.225.
[17] 朱学勤.道德理想国的覆灭——从卢梭到罗伯斯庇尔[M].上海:上海三联书店出版社,1994.279.
[18] Alexander Meicklejohn. The Constitutional Powers of the People[M]. Political Freedom, 1965. 102.
[19] 许崇德.宪法[M].北京:中国人民大学出版社,1999.140.
[20] 应星.大河移民上访的故事[M].北京:三联书店出版社,2001.209.
[21] [美]L·科赛.社会冲突的功能[M].北京:华夏出版社,1989.26.
[22] 马作武.中国古代法律文化[M].广州:暨南大学出版社,1985.164.
[23] 胡中才.古代“信访”史话[M].武汉:湖北人民出版社,2000.
[24] 皮纯协、潘祜周、王英昌.中外监察制度简史[M].郑州:中州古籍出版社,1991.25.
[25] 刁杰成.人民信访史略[M].北京:北京经济学院出版社,1996.
[26] 刘絮、聂玉春.信访工作手册[M].北京:高等教育出版社,1988.26.
[27] 毛泽东.毛泽东选集(第5卷)[M].北京:人民出版社,1977.72.
[28] 周占顺.认真贯彻“三个代表”的重要思想努力开创新世纪信访工作新局面[J].人民信访,2001,(10).
[29] 王亚美、陈晋胜.中国信访制度的回顾与展望[J].山西农业大学学报,2006,(3).
[30] [日]盐野宏.杨建顺译.行政法[M].北京:法律出版社,1999.292-295.
[31] 张正钊、韩大元.比较行政法[M].北京:中国人民大学出版社,1998.677-681.
[32] 王名扬.法国行政法[M].北京:中国政法大学出版社,1988.541-548.
[33] 胡冰.国外民愿表达机制与我国信访体制的改革[J].特区理论与实践,2003,(12):60.
[34] 王名扬.英国行政法[M].北京:中国政法大学出版社,1987.251-264.
[35] 徐东.台湾地区陈情制度介评暨其与大陆信访制度之比较[J].台湾法研究学刊,2002,(1).
[36] 中国行政管理学会信访分会.信访学概论[M].北京:中国方正出版社,2005
[37] 于建嵘.信访的制度性缺失及其政治后果[J].凤凰周刊,2004,(32):50-53.
[38] 赵东辉.信访的体制瓶颈亟待突破让民意顺畅上达[J].瞭望新闻周刊,2003,(40):23-25.
[39] 张军.信访正承受不能承受之重[J].民情与信访,2003,(5):47.
[40] 陈晋胜、王鹏跃.群体性事件政治成因分析[J].山西大学学报,2003,(2):102-103.
[41] 陈晋胜、张涛.群体性事件经济成因分析[J].山西大学学报,2004,(1):55-56.
[42] 陈晋胜、安明贤、王俊海.群体性事件文化成因分析[J].理论探索,2005,(6).
[43] 罗豪才.现代行政法制的发展趋势[M].北京:法律出版社,2004.4.
[44] 陈晋胜、介新玲.群体性事件法治成因分析[J].山西大学学 报,2003,(4):34-36.
[45] 于建嵘.中国信访制度批判[J].中国改革,2005,(2):26-28.
[46] 陈晋胜、王亚美.新《信访条例》亮点与缺憾[J].经济师,2006,(7).
[47] 林伯海.人民代表大会监督制度的分析与构建[M].北京:中国社会科学出版社,2004.370-373.
[48] 冀刚毅.建议将制定国家信访法纳入立法规划[J].人大研究,2004,(2).
[49] 田文利.信访制度改革的理论分析和模式选择[J].http://www.calaw.cn.
[50] 应星.作为特殊行政救济的信访救济[J].法学研究,2004,(3):70-71.