【作者】 喻少如；

【导师】 秦前红；

【作者基本信息】 武汉大学 ， 宪法学与行政法学， 2010， 博士

【摘要】 行政给付是一种重要的行政行为制度,是现代服务行政的重要体现。建构科学的行政给付理论,明确国家的给付责任和义务,夯实公民宪法上的社会权以及行政法上的受益权基础,确立适当的行政给付程序和完善的监督救济机制,对于切实推进民生行政,具有重要的理论和实践意义。本文从厘定行政给付概念入手,以权利义务关系视角为中心,因袭传统的“主体—行为——程序——监督与救济”的逻辑思路,运用公法学理论工具,着重对我国行政给付制度的本体功能、价值基础、实践运行等问题进行了初步的探讨,并提出若干完善建议。全文除引言外,共分五大部分。引言主要交代了选题缘起,对行政给付有关国内外研究文献进行了简要综述,并对本文拟采用的研究方法及研究思路作出说明。第一部分主要是行政给付的概念界定、功能分析和历史发展走向探讨。目前行政给付概念有狭义的行政救助和广义的给付行政之分,本文采用了广义行政给付概念,并对行政给付与相关概念进行了辨析。行政给付在给付主体、给付对象、给付形式以及启动程序表现出若干形式上特点,其实质上特点可概括为以生存照顾为主要目的、以财产给付为主要内容以及以非强制手段为主要方式的授益行政行为。行政给付主要具有克服贫困、消除社会排斥的社会性功能,分配利益促进发展的经济性功能,维护稳定重建合法性的政治性功能,维护社会公平正义的法制性功能等四大功能。这些功能在行政给付的历史发展中各有侧重。通过对英国济贫法传统和德国社会保险法传统等历史分析,指出从秩序行政向给付行政,并从直接给付行政转向间接给付行政的历史规律,我国也面临行政给付制度的转型。第二部分着重分析行政给付的宪法基础。作为行政给付制度而言,其要点无非就是公民受益权和政府行政给付权力的合法化。本文认为,社会权是行政给付的权利基础,而行政法上的受益权则是具体的受领权利。为防止宪法上的社会权“空洞化”,政府负有尊重义务、保护义务和给付义务。国家义务体系的建立有助于公民社会权的保障和行政给付制度的完善。第三部分探讨行政给付的基本原则。行政给付分为供给行政、社会保障行政和资助行政等广泛领域,原则可以对行政给付立法、执法和司法起到指引、统帅以及补充的作用。本文认为支配行政给付的原则包括社会国家原则、法治主义原则、国家辅助性原则、平等原则、信赖保护、公开公平原则,其中法治原则又包括法律优先和法律保留原则,而法律保留原则和辅助性原则对于我国行政给付制度具有特别重要的意义,故成为本章研究的重点。第四部分讨论行政给付程序建构问题。基于正当行政程序,行政给付在程序设计上,应以申请人为本位,既能兼顾尊严和公平,又能实现行政效率,重视建立行政主体与给付相对人合作型行政。根据美国福利行政等领域的“灵活的正当程序”和德国社会给付行政程序等域外经验,我国应以《行政程序法》的制定为契机,完善行政给付的调查、听证等程序,建构“具有人性的行政”。第五部分研究行政给付的监督和救济机制。文章首先对英国社会保障上诉裁判所制度和日本的市町村监督专员制度进行了梳理,发现两大法系有许多类似或相近的监督与救济制度,对我国颇有参考借鉴意义。针对我国行政给付制度的监督和纠纷解决制度现状,笔者认为,在监督理念上重视预防为先,在监督程序上贯彻公开原则,在监督手段上强化民众参与,目前的监督体系还大有作为。现阶段应改造信访制度和行政复议制度,重视行政机关在解决纠纷机制中的作用,为相对人提供简单快捷且成本低廉的救济程序。在行政给付诉讼制度方面,实现行政诉讼类型化,完善我国的行政给付之诉。更多还原

【Abstract】 Administrative supply is an important administrative act system and a crucial manifestation of modern services administration. Its theoretical and practical significances on the promotion of the livelihood of the executive lie in constructing a scientific theory of administrative supply, identifying responsibilities and obligations of the State’s payments, laying the sound foundation for constitutional social rights and the administrative benefit right in administrative law, establishing appropriate administrative procedures and effective supervised relief mechanism. Starting with the definitions of administrative supply, focusing on the rights and obligations between the government and its citizens,inheriting the traditional logic of thinking: subject-behavior-procedures-monitoring and relief, and using theory of public law, this paper explores the essential functions of China’s administrative supply, its value bases and applications. Then, a couple of suggestions are given on how to improve China’s administrative supply. In addition to the introduction, the paper falls into five parts.In introduction section, the reasons why the topic is chosen are illustrated. Meanwhile, a brief overview of the research literature at home and abroad is given and the research methods adopted in this article as well as the research ideas are elaborated.The first part mainly discusses the definitions of administrative supply, its functions and the trend of its historical development. The concept of administrative supply can be understood either in its narrow sense or its broad sense, with the former refers to the administrative assistance and the latter is the general administration of the supply. This paper adopts the broad meaning and analyzes the administrative supply and its related concepts. As far as the administrative supply is concerned, it can be characterized by its payment subject, payment object, payment forms and procedures. Its essence, a beneficial administrative act, is manifested with survival and care as its primary purpose, property payment as its main content and non-mandatory measures as its main mode. Moreover, the functions of administrative supply are illustrated as follows:elimination of poverty and social exclusion as its social function, benefit distribution to facilitate development as its economic function, maintaining stability and reconstruction of legitimacy as its political function and maintenance of social fairness and justice as its legal function. The historical development of administrative supply sees the various focuses on the four functions. Based on the above discussion and analysis on the British Poor Law tradition and the German social insurance Law tradition, this paper points out the historical patterns concerning the transformation from discipline administration to supply or benefit administration, from direct to indirect administrative supply. Likewise, China also faces such a system transformation.The second part focuses on the analysis of the constitutional basis for administrative supply. As an administrative payment system, it aims at the legalization of citizens’ beneficial interest and government administration payment. This paper argues that social rights are the bases of administrative supply while the beneficial interest of administrative law is a specific right. To avoid the hollowness of a constitutional social right, the government is supposed to respect, protect and execute obligations. Therefore, the establishment of the state obligation system will contribute a lot to the security of citizens’ social rights and improvement of administrative supply.The third part explores the basic principles of administrative supply which is composed of supply administration, social security administration, subsidy administration and so on. The principles, serving as guidelines and complements to legislation, execution and jurisdiction of administrative supply, include social state principle, the legalism principle, state subsidiary principle, equality principle, trust protection principle and openness and fairness principles. The legalism principle consists of law superiority and law reservation. In particular, the principle of law reservation and subsidiary principle have profound influence on China’s administrative supply system. Hence, they become the focus of this chapter.The fourth part studies the procedure construction for administrative supply. Based on the proper administrative procedures, administrative supply is supposed to be applicant-oriented, which can keep a balance between dignity and fairness and be efficient executively, and can help reestablish the cooperative administration between the administrative subject and the administrative counterpart. The Flexible Due Process in American welfare administration and German social supply procedure provide rich experience, and China is supposed to take advantage of the legislation of Administrative Procedure Act, to improve the procedures of investigation and hearing pertaining to administrative supply system, and construct a humanized administration. The fifth part investigates the supervision and assistance mechanisms of administrative supply. To start with, this article compares the British social security appeal tribunal system and Japan’s Municipalities Ombudsman system and finds that there are many similarities in terms of supervision and relief systems, which may be learnt by China. In view of China’s current supervision and dispute resolution systems concerning administrative supply, some suggestions are provided. First and foremost, precaution should be put first in terms of supervision concept. The principle of openness should be carried out in terms of monitoring procedure, and public participation awareness should be reinforced in terms of supervision means. Only in this way can the current supervision system work efficiently. Secondly, it is the time that the letters-and-calls system and the administrative reconsideration system be bettered, and more attention should be paid to the executive’s role in dispute settlement mechanisms in order to provide a relatively simple, quick and cost-effective relief procedure. In addition to this, the realization of categorization of administrative litigation is helpful to improve China’s litigation system.更多还原