【作者】 张彬；

【导师】 陈晓枫；

【作者基本信息】 武汉大学 ， 宪法学与行政法学， 2014， 博士

【摘要】 我国现有行政法治的监督模式具有多元化特点,但从监督效果来看,各种监督不同程度存在自身不足,现有监督模式既有盲区亦有缺位。十八大以来,我国法治建设明显加快,为实现依法行政目标,亟待对行政监督体系进行完善。从世界范围来看,发达国家均从意识形态、法律传统、政治体制等国情出发,选择自身相适应的行政权控制或者监督模式。党的十八届三中全会指明要实现中华民族伟大复兴的“中国梦”必须依靠法治,而当前“依法行政”的法治目标依然任重道远。因此,当前深入研究具有中国特色的行政检察制度,完善对行政权依法行使的监督模式,对于促进依法行政、司法体制改革、服务经济社会建设都具有特殊的时代意义。我国行政诉讼法和人民检察院组织法的修改也都必然涉及行政检察制度,完善行政检察制度既是我国人民检察事业科学发展的重要内容,也是目前迫切需要解决的理论难题。鉴于行政检察制度的重要研究价值,被作为2013年行政法学年会的重要主题之一。我国宪法规定检察机关是专门的法律监督机关,检察机关对依法行政的制度化监督具有宪法依据。近年来,为维护国家利益与社会公共利益,防止国有资产流失,我国各地行政检察部门在忠实履行原行政诉讼监督职责的基础上,积极开展防止国有资产流失的督促起诉,针对行政不作为的督促履职,行政执法与刑事司法相衔接以及行政执法检察监督等诉讼外监督模式的探索与实践,办理了数以万计的彰显法治、监督行政、惠及民生的诉讼外行政检察监督案件,深入推进了依法行政和社会管理创新,回应了群众的期待,也大大增强了检察机关的社会公信力与认可度。随着行政检察监督呈现出良好的政治效果和社会效果,目前已有三十一个省级地方人大先后出台了关于加强检察监督的决定等规范性文件对此表示支持,各地方党委也对检察机关的行政检察监督工作持肯定态度。在此背景下,有必要在已有研究的基础上,及时探究行政检察,尤其是诉讼外行政检察制度背后的现实与理论依据,建议完善行政检察制度的相关立法,设计更有针对性、可操作性的程序规范,提供更系统的配套制度支持等。本文意在通过理论分析与实证考察,深化理论与总结经验,为我国行政检察制度的完善及科学发展建言献策。具体内容分为以下四章：第一章,行政检察制度的基本理论本章重点论述了我国行政检察制度的基础性问题。首先,概述了我国的行政检察制度,对行政检察制度的内涵和外延进行分析界定。其次,运用历史研究方法,对行政权控制与监督理论进行梳理,深刻揭示了行政权控制与监督的必要性。再次,运用比较分析,对英美法系、大陆法系的行政权控制模式以及前苏联、俄罗斯的检察监督模式进行比较研究,揭示了行政检察监督制度是更符合中国国情的行政权监督模式。第二章,行政检察制度的正当性依据本章详细阐释了我国行政检察制度的正当性问题。首先,运用历史分析法,论述了我国古代监察制度的历史演进及其特点,揭示了当代行政检察制度本身具有深厚的法律文化传统基础。回顾了中国行政检察制度的历史演进与发展历程,总结了近现代行政检察制度从孕育到曲折发展的历程。其次,多角度系统论证了我国行政检察监督制度的正当性,具体来说：其一,从现实角度分析,分析了我国“依法行政”的法治目标以及现有多元化监督力量自身难以克服的弊端,行政检察制度却具备独特的内在优势,能够克服现有行政权监督体制的缺陷,从而揭示了我国行政检察监督制度的现实合理性。其二,从法理角度分析,运用辩证唯物主义关于事物性质的认定标准,对检察监督权的本质属性进行了解析,进而阐述了行政检察监督的法理和宪法依据。其三,从应用价值角度分析,对行政检察监督制度的现实意义进行了分析论证。第三章,我国行政检察制度的实证考察本章通过实证,论述了我国行政检察制度近年来的实然性问题。具体结合近几年全国的相关数据和典型案例,运用实证分析的方法,对全国行政检察制度的各项工作情况逐一进行了论述：一是全面分析了全国检察机关传统的行政诉讼监督工作的情况。二是全面分析了近年全国检察机关参与社会管理创新、促进依法行政,积极开展诉讼外行政检察监督工作的情况,主要包括：保护国有资产的督促起诉、督促行政机关履职、行政执法与刑事司法的衔接、行政执法监督等。这些工作得到了各省人大、地方党委的支持,各省市的地方性规范文件对此普遍表现出支持态度。三是对现有行政检察机构设置问题进行了实证考察。四是归纳了当前行政检察工作存在的诸多问题,查找了制约我国行政检察制度发展的诸多原因。第四章,我国行政检察制度的完善路径本章重在论述我国行政检察制度完善发展的应然性问题。在前面三章的基础上,针对我国行政检察制度完善发展面临的重点和难点问题,提出了一些较有创新性和可行性的建议,探寻了行政检察制度的完善路径。例如：呼吁立法机关增加对行政检察制度的法律授权、建议行政检察与民事检察的机构分立、提出并论述了行政公开的检察监督机制、行政检察建议的监督跟进机制、抽象行政行为的审查机制、行政检察监督的配套机制、行政检察监督的自律机制等。更多还原

【Abstract】 There have been various institutions to supervise administrative power in China’s existing legal system, while not only with flaws in every single supervision institution, but also vacancies under the whole system. Since18th. National Congress of the Communist Party of China proposed to accelerate the progress of construction of rule of law, to fulfill the goal of administration according to law, it is increasingly important that to improve supervision system of administrative power. It is universal that to establish a control or supervise mode according to one nation’s ideology, tradition, political realm and other specific conditions all around the world. On consideration of such experiences, reports of the3rd. Plenary Session of the18th. National Congress of the Communist Party of China pointed out that it is only way to realize the dream of rejuvenation of Chinese nation that stick to rule of law, and administration according to law is key to this long journey. Hence, it is essential to explore China’s administrative procuratorial system and improve it, to keep pace with the time being. To initiate this reform progress, there would involve amending judicial institutions and constitutive laws of procuracy, which relates to reform of procuracy and theoretical research in this field.Constitution authorizes the procuracy to execute the supervision power, which provides constitutional ground for procuratorial supervision on administration. To fulfill this constitutional duty and protect interests of nation and public, to prevent loss of nation’s assets, the procuracy actively brings suits against administration not only applying rules of administrative procedural law, but also applying administrative law, combine execution of law and criminal procedures, in order to urge administration to fulfill its duty, prevent loss of nation’s assets. By various exploration in practice, thousands of supervision cases have been solved other than by judicial procedures, those cases received extraordinary social effects, protected people’s interests and promote construction of rule of law greatly, which strengthen authority of the procuracy. As results of those cases’political and social influences, there have been31provincial People’s Congresses issued local legal documents to support such exploration as well as local Party committees. Under these circumstances, it is necessary to explore theoretical rules and summarize experiences on basis of existing research and practice, especially to push reforms of legislatures forward in procedural rules, to enhance pertinency and feasibility, and accomplish supporting systems. This paper intends to analyze practices and theories of procuratorial supervision on administration, and offer some advice on legislature.Section Ⅰ:Basic Theories of Procuratorial Supervision on AdministrationThis part focused on basic theoretical topics. It starts from definition of procuratorial supervision on administration in China. Then historical analysis would reveal the necessity to control and supervise administrative power. In the end, comparative analysis among Anglo-Saxon law system, Continental Law system and laws in Soviet Union and Russia would demonstrate the rules to select a mode according to one nation’s situation, which is procuratorial supervision in China.Section Ⅱ:Legality of Procuratorial Supervision on AdministrationHistorical traces of censor supervisory system in ancient China as well as modern procuratorial supervision system would reveal legal traditions for modern China. On grounds of history, procuratorial supervision on administration earns its legality in various ways:first of all, its practical effects prove its feasibility to conquer flaws in existing system. Secondly, to explore connotation of procuratorial power by dialect methods and jurisprudential analysis, it has solid ground from constitution and principles of laws. Thirdly, this part clarifies its practical valuc。Section Ⅲ:An Empirical Study on Procuratorial Supervision on Administration in ChinaThis part analyzes practices of procuratorial supervision from empirical angle. Data and cases gathered all over the country would show vivid picture in the field:first, they showed a comprehensive picture of prosecution initiated by the procuracy. Second, other than judicial procedures, the procuracy has launched campaigns of institutional innovations in social management, promotion of administration according to law and other supervision on administration, including:supervision on fully performance of administrative duty, prevent loss of nation’s assents, combine execute of law with criminal judicial procedures. Those efforts have earned supports from local People’s Congresses and local Party’s committees. Thirdly, the organization of supervision offices in procuracy is analyzed in empirical way. Fourth, problems would be summarized, in order to point out causes, which constraints development of institutions of procuratorial supervision on administration.Section Ⅳ:to Improve Procuratorial Supervision on Administration in ChinaThis part demonstrates necessity to develop institutions of procuratorial supervision on administration. On basis of analysis above, this paper aims to explore some institutional innovation to improve existing systems. For example, authorization by law, separation of supervision offices, supervision on open-government, mechanism of follow-through the procuratorial advice, supervision on abstract administration, enhance independence of procuratorial power and strengthen self-constraint of procuracy.更多还原