淺論我國(guó)信訪制度的改革（1）

淺論我國(guó)信訪制度的改革

內(nèi)容提要

信訪是公民、法人和其他組織采用書(shū)信、電話(huà)、走訪等形式，向各級(jí)人民政府、縣級(jí)以上各級(jí)人民政府所屬部門(mén)反映情況，提出意見(jiàn)、建議和要求，依法應(yīng)當(dāng)山有關(guān)行政機(jī)關(guān)處理的活動(dòng)。信訪制度就是信訪人向國(guó)家機(jī)關(guān)提出信訪事項(xiàng)的過(guò)程，調(diào)整信訪活動(dòng)的各個(gè)參與主體的權(quán)利義務(wù)關(guān)系的•系列規(guī)則、程式的統(tǒng)稱(chēng)。它是我國(guó)社會(huì)主義建設(shè)過(guò)程中的一項(xiàng)具有中國(guó)特色的制度。
當(dāng)前我國(guó)止處于關(guān)鍵的社會(huì)轉(zhuǎn)型時(shí)期，改革和發(fā)展中產(chǎn)生許多的問(wèn)題，如法律不完備，執(zhí)法不嚴(yán)、司法不公和政策偏失等等，各種問(wèn)題和矛盾通過(guò)不同渠道集中到各級(jí)信訪結(jié)構(gòu)，并不斷地向中央國(guó)家有關(guān)機(jī)關(guān)聚集，信訪大戶(hù)、重復(fù)訪、訪頻繁發(fā)生，使首都北京及部分省會(huì)城市面臨很大的_壓力，信訪制度承載了整個(gè)社會(huì)變革轉(zhuǎn)型及_的重任，表現(xiàn)出對(duì)解決問(wèn)題的不力和不適應(yīng)。信訪制度的改革也成為社會(huì)公眾關(guān)注的焦點(diǎn)。本文主要從以下五個(gè)大的方面就信訪制度的基本理論、問(wèn)題及改革作出研究和探討。

第一部分為信訪制度概述。本文分七個(gè)方面對(duì)信訪的概念、性質(zhì)和功能、歷史發(fā)展、機(jī)構(gòu)設(shè)置、調(diào)整范圍、信訪主體的權(quán)利義務(wù)、信訪活動(dòng)的類(lèi)型和特點(diǎn)作了闡述:(一)、信訪制度的概念(略)(二)、信訪制度的性質(zhì)和功能1、關(guān)于信訪制度的性質(zhì)，信訪制度是憲法保障的公民民主權(quán)利的制度，信訪制度是一種特殊的行政救濟(jì)制度，是體現(xiàn)政治溝通的制度;2、信訪制度的功能:(1)信訪是人民群眾政治參與、利益表達(dá)的制度性方式，也是維護(hù)和實(shí)現(xiàn)人民群眾經(jīng)濟(jì)利益和民.主權(quán)利的重要手段:C2)信訪是個(gè)體權(quán)利對(duì)公共權(quán)力的控制，是公民監(jiān)督行_力、司法權(quán)力的有效途徑;(3)信訪制度是黨和政府及其負(fù)責(zé)人密切聯(lián)系群眾，了解社情民意的一種制度化形式;(4)信訪制度深化_合法性，維護(hù)_;(5 )信訪工作對(duì)建設(shè)小康社會(huì)和構(gòu)建社會(huì)主義和諧社會(huì)的獨(dú)特作用。(三)、信訪制度的歷史發(fā)展，從古代的直訴制度說(shuō)起，追溯到新中國(guó)信訪制度的建立，從中可以看到現(xiàn)行信訪制度與我國(guó)古代的直訴制度存在繼承和連續(xù)關(guān)系。(四)、我國(guó)信訪機(jī)構(gòu)的建制及運(yùn)作程序:本文闡述了我國(guó)信訪機(jī)構(gòu)龐大分散，歸日不一，規(guī)格較低，缺乏解決問(wèn)題的資源和實(shí)際權(quán)力，以及信訪_L作件，的“分級(jí)負(fù)責(zé)，歸口辦理”的運(yùn)作程序。(五)信訪制度的調(diào)整范圍:雖然信訪條例規(guī)定了對(duì)國(guó)家機(jī)關(guān)、農(nóng)村、城市基層組織及其工作人員、成員的職務(wù)行為，信訪人均可向有關(guān)行政機(jī)關(guān)提出信訪事項(xiàng)，同時(shí)又作出了“對(duì)依法應(yīng)當(dāng)通過(guò)訴訟、仲裁、行政復(fù)議等法定途徑解決的投訴請(qǐng)求，信訪人應(yīng)當(dāng)依照有關(guān)法律、行政法規(guī)規(guī)定的程序向有關(guān)機(jī)關(guān)提出�！钡南拗�，但信訪機(jī)構(gòu)在實(shí)踐中更習(xí)慣于將信訪事項(xiàng)層層向下級(jí)轉(zhuǎn)送、交辦。(六)信訪主體的權(quán)利義務(wù):信訪法律關(guān)系的主體包括:信訪人、信訪機(jī)構(gòu)、承辦機(jī)關(guān)，信訪人信訪活動(dòng)中享有“批評(píng)、建議、中訴、控告和檢舉”的權(quán)利，同時(shí)也承擔(dān)“不得捏造或者歪曲事實(shí)進(jìn)行誣告陷害”的義務(wù)。承辦機(jī)關(guān)享有依法查清事實(shí)和處理信訪事項(xiàng)的權(quán)利和義務(wù)，信訪機(jī)構(gòu)享有依法登一記、交辦、轉(zhuǎn)送信訪人提出的信訪事項(xiàng)的權(quán)利義務(wù)，也具有對(duì)承辦機(jī)關(guān)的督查權(quán)和建議追
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構(gòu)違反條例的習(xí)慣做法;(2)依法保障公民正當(dāng)行使信訪權(quán)利，維持正常的信訪秩序，從政績(jī)考核機(jī)制和責(zé)任追究制度兩個(gè)方面進(jìn)行保障;(3)建立全國(guó)信訪信息系統(tǒng)，構(gòu)建網(wǎng)絡(luò)平臺(tái)，實(shí)現(xiàn)資源共享;(4)提高信訪工作人員的素質(zhì)，適應(yīng)新時(shí)期新形勢(shì)信訪工作的需要;(5)規(guī)范政府決策的法律非訴可行性分析，對(duì)政府決策提出“信訪評(píng)估”的模式，確保決策科學(xué)化、民主化、法制化;(6)司法部門(mén)信訪制度改革;(7)改革和創(chuàng)新監(jiān)察制度，建議信訪部門(mén)和監(jiān)察部門(mén)合并;(8)發(fā)揮社會(huì)團(tuán)體、墓層組織在解決社會(huì)矛盾和問(wèn)題中的作用:2遠(yuǎn)期方案是:(1)維護(hù)表達(dá)權(quán)和抗議權(quán)等基本公民權(quán)利，進(jìn)一步落實(shí)和發(fā)展社會(huì)主義的民主;(2)撤消各級(jí)政府及其職能部門(mén)的信訪機(jī)構(gòu)，把信訪職能集中到各級(jí)人民代表大會(huì)，通過(guò)人民代表監(jiān)督一府兩院的I=作。改革的具體措施是:1)建立全國(guó)人大信訪網(wǎng);2)組織各級(jí)人民代表對(duì)本選區(qū)的重要信訪案件進(jìn)行調(diào)查和督辦;3)建立監(jiān)督專(zhuān)員制度，強(qiáng)化利益表達(dá)和法律監(jiān)督功能;})逐步擴(kuò)大在中國(guó)共產(chǎn)黨領(lǐng)導(dǎo)一F的人大代表直接選舉范圍;(3)科學(xué)劃分中央和地方政府之間的權(quán)限范圍，合理構(gòu)建問(wèn)責(zé)制，依法規(guī)范上一卜級(jí)政府的關(guān)系;(五)與信訪制度有關(guān)的支持保障機(jī)制的改革。1司法_改革，改革財(cái)政、人事_，保障司法獨(dú)立;加快審判制度改革，運(yùn)用有效的規(guī)則，制衡法官的_裁量權(quán);加強(qiáng)法律援助司法救助::I.作，降低當(dāng)事人的訴訟成木;2修改行政復(fù)議法、行政訴訟法、國(guó)家賠償法，使之充分發(fā)揮公民的權(quán)利救濟(jì)功能:3實(shí)現(xiàn)政府結(jié)構(gòu)性轉(zhuǎn)型，重塑政府的公信力，自覺(jué)維護(hù)政府的信譽(yù)，樹(shù)立政府坦率、坦白、坦然的品質(zhì)。4建立民意表達(dá)機(jī)制和現(xiàn)代新聞制度，引一導(dǎo)媒體止確的履行監(jiān)督職責(zé)。5培育現(xiàn)代公民的_I:體意識(shí)、權(quán)利意識(shí)和社會(huì)責(zé)任意識(shí)，營(yíng)造崇尚法律的社會(huì)氛圍。

第五部分為結(jié)語(yǔ)。信訪制度在一定時(shí)期和一定程度上聽(tīng)取社會(huì)弱勢(shì)_的呼
聲，實(shí)現(xiàn)社會(huì)止義等方面起到一定的權(quán)利救濟(jì)作用。但歸根結(jié)底是人治社會(huì)的產(chǎn)物，不利于糾紛的解決和人權(quán)的保障，撤消或強(qiáng)化信訪制度都是不正確的，應(yīng)對(duì)我國(guó)信訪制度、司法_及配套措施進(jìn)行改革，弱化信訪制度的權(quán)利救濟(jì)功能，直至僅僅承擔(dān)公民的利益表達(dá)和民情反映功能。
關(guān)鍵詞:信訪制度　問(wèn)題　改革

AbstractPetition refers to the activities that citizens, legal persons and other organizationsusing mails, telephone calls, visits, in order to e*press their views, suggestions andrequests to the peoples governments at all levels, the certaing departments of peoplesgovernments at above the county levels. Petition system is the the process thatpetitioners state their petition issues. And also a series of rules, programs that adjustthe various activities involved in the rights and obligations of the joiners. It is asystem with Chinas characteristics in the process of building socialism.
At present, China is at a critical period of social transition, reform anddevelopment lead to many problems, such as inadequate laws, la* enforcement oflaws, judicial injustice and policy be ignored, and so on, problems and conflictsthrough different channels at all levels to focus petition structure, and continuously tothe central state organs concerned to gather petition large, repeat visits, file frequently.
Beijing, the capital and some provincial cities face tremendous pressure on socialstability. Petition bearing system as a whole transformation of social change andsocial stability of the mission, shown to solve the problem of poor and unaccustomedto it. The reform of the petition system has become the focus of public attention. Thispaper mainly from the following five major aspects of the petition systems basictheory, and the reform of study and discussion.
The first part is the outlines of petition system. This paper is divided into sevenaspects of the concept of the letters, and the nature and function, historicaldevelopment, institutional setup, adjustment, Petition main rights and obligations ofthe petition and the types of activities described characteristics:(I)The concept ofthe petition system (abbreviated).(II)the petition system and the nature of a functionof the nature of the petition system. 1 .petition system is the constitutional guaranteeof the democratic rights of citizens, the petition system is a special administrativerelief system communication is the political system in recent years. 2. the petitionsystem functions: (1) Petition is the peoples political participation, e*pressed interestin the system, as well as safeguarding and realizing the peoples economic interestsand democratic rights of the important means. (2) Petition individual right to thecontrol of public power is a civic oversight of the e*ecutive power, judicial power inan effective way. (3) The petition system of the party and the government and itsresponsible person close ties with the masses and public opinion to understand thesocial conditions of an institutionalized form. (4) The petition system deepeningregime legitimacy, and safeguard social stability. (5) Petition work of building awell-off society and building a socialist harmonious society is unique role. (III) Thethe petition systems development, from the ancient system of direct appeal begins,the new China dates back to the establishment of the petition system, From this wecan see that the current petition system in ancient China and the direct appeal systemand the continuous e*istence of inheritance relations. (IV) Chinas Petition bodiesformed and operational procedures:This paper elaborated on Chinas huge petitionbodies scattered, and assign different lower specifications, to solve the problem oflack of resources and real power, and the notice of "individual responsibility.
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