申诉机制的救济功能与信访制度改革

The Remedy of Complaint Appeal System and the Reform of Petition System

申诉制度在当代世界各国受到普遍重视,逐步发展为一种新型的非诉讼救济机制,并向多种行业和领域拓展,显示出新的社会治理模式对现代传统体制、理念、程序和技术等多方面的超越与发展。同为申诉制度,我国的信访制度却面临着诸多危机。在以往的各种改革建言中,既有废除信访或取消其救济功能的主张,也有借鉴国外申诉(监察)专员制度对其进行重构的建议。新一轮信访改革推出了一系列完善信访救济功能的措施,同时也在探索以正式法律程序替代信访的思路,其中隐含着一种深刻的内在矛盾。在我国,直接移植西方申诉专员制度难以实现,但借鉴其思路,将信访作为行政性申诉救济机制加以重构,发挥其替代诉讼的功能则具有建设性和可行性。由于信访面临的困境不仅是制度设计的问题,还有着深刻的体制、文化和社会根源,因此,其改革将是一个复杂的系统工程和历史进程。在"顶层设计"难以实现的情况下,"摸着石头过河"式的渐进式改革也不失为理性之路。

The complaint appeal system has been emphasized by various countries in the world, and has been developed into a new type of ADR and expanded to different industries. As a new social governance model, it develops and surpasses traditional system, ideal, process and technical. As same complaint appeal system, China＇ s petition system is facing many crises. In the various reform suggestions in the past, there were many claims such as abolishing the petition system, cancelling its remedy function, and reforming it as the Ombudsman system. The new reform of petition system launched a series of measures to improve its remedy function, but at the same time, it is also aninner contradiction that changing the petition system into a formal legal procedure. In China, the transplantation of ombudsman system cannot be achieved, but it may be feasible that we can borrow their ideas and reform the petition systemas an administrative ADR may be feasible. The predicament of petition systemis caused by our system, cultural and social problems, its reform is thus a complex system engineering and long historical process. At the time that the top-level design is too difficult to implement, the progressive reform likes ＂crossing the river by touching the stones＂ may be a rational way.