完善行政执法程序立法的几个问题

Several Problems on Legislation Improvement of Administrative Enforcement Procedure

《行政处罚法》、《行政许可法》、《行政强制法》等单行立法仅规范部分执法活动,调研表明,行政执法实践存在大量问题,与执法程序立法的总则性规范缺失和不完善有直接关系。落实四中全会《决定》提出的完善执法程序立法的要求,首先需要调整立法思路,由单行"零售立法"转向制定综合性统一立法,具体方案可以先由国务院制定《行政执法程序条例》。制定条例,要回应行政执法实践面临的双重问题:一方面是执法权违法行使与执法不公,损害当事人的权利和执法公平;另一方面是行政执法中较为普遍存在的执法不作为与慢作为,行政执法效能不足,法律得不到有效实施。保障公民权利与提升行政效能是立法要实现的双重目的。保障公民权利要解决执法乱作为问题,主要机制包括确立行政基本原则、保障公民知情权与参与权、完善行政执法证据制度等;提升行政效能要解决执法不作为与慢作为问题,主要机制包括理顺执法机关纵向横向关系,简化申请处理程序,提升行政执法信息化程度等。

The Administrative Punishment Law, the Administrative Licensing Law, the Administrative Enforcement Law and other separate legislation regulate only part of the enforcement activities. A survey indicates that many problems existing in administrative enforcement practice are directly related to the lack and imperfect of general norm of the enforcement procedure legislation. Therefore in order to implement the requirement of perfecting enforcement procedure legislation promoted by the Decision of the fourth plenary session, the first thing should be the legislation thinking adjustment from separate one to a comprehensive uniform law, such as a Regulation on Administrative Enforcement Procedure by the state council. In this regulation the dual problems faced by administrative enforcement practice should be responded. One is the abuse or unfair use of enforcement power prejudicing the right of the parties as well as the enforcement fairness. The other is the omission or slowness enforcement widely existing in administrative enforcement, causing the insufficient effectiveness of administrative enforcement and ineffective implementation of the law. Both safeguarding right of citizens and improving administrative efficiency are the dual aims of enacting the regulation. For safeguarding the right of citizens, the abuse enforcement should be solved, including stipulating administrative basic principles, safeguarding the right to know and the right to participate of citizens, and improving administrative evidence systems, etc. Whilst for improving administrative efficiency, the omission or slowness enforcement should be solved, including rationalizing the relationship between admin.istrative agencies on superior- subordinate level and equal level, simplifying the procedure of dealing with application, and enhancing information degree of administrative enforcement, etc.