Go homepage(回首页) Upload pictures (上传图片) Write articles (发文字帖)
The author:(作者)aaapublished in(发表于) 2013/12/6 12:13:42 Professor at Peking University law school： regulatory legislation for top design within the party-party law-school of law
Inner-party regulatory legislation for top design
Recently, the Central inner-party regulations of CPC Central Committee issued the five-year plan for the development (2013-2017) (hereinafter referred to as the program). It is developing the first ever inner-party regulations of CPC legislative plan.
The platform for the next 5 years the central integrated the rulemaking work within the party, put forward the guiding ideology, objectives, basic requirements, main tasks and implementation requirements, identifying a group of inner-party regulations focused on developing projects.
"In the 18 c would be the adoption of the comprehensive decision on deepening reform, a number of important issues of half a month later, the CPC Central Committee has issued the platform, demonstrated a sound regulatory system to strengthen and improve the party's leadership within the party's important role. "Peking University Law School Professor Jiang Mingan to the 21st century business Herald reporter said, also says, this is a regulation within the party-building in standardization and system to their own needs.
Jiang Mingan believes that regulatory legislation for top design within the party. Building a socialist country with Chinese characteristics, can't open system without the system of open Party Affairs.
Of the 21st century: Why introduce inner-party regulations of legislative planning?
Jiang Mingan: new China established yilai, especially opening yilai, Central and Central sector although developed has a large number of party regulations, but, due to legislation no overall planning, no top layer design, thereby party regulations exists "debris of" phenomenon: many area missing necessary of based trunk sexual of regulations, some area although has based trunk sexual regulations, is missing supporting sexual regulations, also some area of some regulations exists with mutual repeat, even mutual conflict of case.
Despite recent legislation to clean up, the partial solution to the problem is reducing, but if we don't get a launch party for formulating regulations on the planning or planning framework, especially the central regulatory plan or program within the party, these problems cannot be solved, even if the old problems are solved, new problems are constantly being produced. Therefore, timely introduction of the platform, this top design is to increase standardization and system construction of inner-party regulations to their own needs.
Of the 21st century: compared with the average of legislative planning, what are the characteristics of the platform?
Jiang Mingan: the platform for action in the form of legislation is different from the General plan. Planning usually lists only an amendment to the legislation and regulations within the party projects to be reformulated, or divide the project into level legislation, secondary legislation project, as well as three levels of legislation. And Platform for under no full lists specific legislation project (may future to Annex forms publishing), and including four part content: a is determines party regulations developed of guiding ideology, and work target and basic requires, makes regulations developed main has followed; II is clear party regulations of main category (is divided into party of led and party of work, and thought construction, and organization construction, and style construction, and anti-corruption construction, and democratic centralism construction six class) and various don't intends modified and intends again developed of party regulations main content ( And some of them just lists of specific projects, but does not list all);
Third is requests on how to improve the quality of inner-party regulations to protect the formulation of regulation within the party can well reflect the policy intent and the legislative guiding ideology; four were undertaken to introduce regulatory departments and units within the party how to do well in the Organization and implementation of the platform for the request, in order to guarantee the effective implementation of the platform.
How to formulate the party's organization law
Of the 21st century: why is the platform proposed to capture the development of the Communist Party of China party Ordinance, the regulation should be developed to focus on what issues?
Jiang Mingan: the party belonging to the Organization of the work of the CPC regulation. Organization law typically provides three elements: one is the nature of organs, institutions, organizations, status; second, the functions of the organs, institutions, organizations, functions, responsibilities, and principles of activities of the three organs, institutions, organizations, methods, procedures, and so on.
From the perspective of the rule of law, organic law on organs, institutions, organizations should be developed prior to the establishment and conduct of activities (code is usually set in the establishment and activities of the organs, institutions, organizations). Past, due to we not attention rule of law, organization legal construction has been comparison weak, not said party regulations, is national law, organization law also is not perfect, as province, and autonomous region, and municipalities, and city, and State, and County, and autonomous county, and Township, and town of municipal people's Government Organization law, and State ministries of Organization regulations (to "three set approach" of internal file replaced) to currently are enough sound.
Now, we Party stressed law ruling, developed party work regulations under is very necessary of, purpose is straighten out party and is located organ, and institutions, and organization of relationship, "both support NPC, and Government, and CPPCC, and justice organ, and civic pursuant to legal and respective regulation independent is responsible for, and coordination consistent to carried out work, support State enterprise and institution law operating, and played party in these institutions in the of led core role, guarantee party of route approach policy and decision-making deployment get implementation". To that end, the party work must be carefully designed to ensure harmonization of these two aspects.
Of the 21st century: we have noted, the Platform proposes to amend the provisional regulations on leading cadres of party and government accountability by, how do you think should be revised?
Jiang Mingan: accountability, including accountability of political and legal accountability. Former leadership (not necessarily misfeasance or malfeasance), responsibility for violation of laws and disciplines, misfeasance, malfeasance, and which is mainly the responsibility of removal, resignation, removal from Office, transfer out of job, demotion etc, which is mainly the responsibility of party and Government disciplines discipline and criminal responsibilities shall be affixed.
The so-called "making accountability work arrangements" refers to the responsibility of the former norm, state laws and party rules for the latter responsibility has been a relatively clear specification. Problem now is that accountability is often confusing two different kinds of responsibilities and accountability. A leading cadre, which for reasons of accountability not misfeasance, malfeasance, such as accidents, incidents, naturally assume first responsibility; if for reasons of accountability there is dereliction of duty, malfeasance, such as accidents, incidents, first form responsibility requires not only, and the second form of responsibility to it.
But some subjects are often the first form of accountability responsibilities replaced the second responsibility form that corresponds to the second responsibility of the leaders ' first responsibility to replace only. "Cadres of the accountability arrangements of" arbitrary in the way they "comeback". As regards the first responsibility for the corresponding "cadres of the accountability arrangements" and "comeback", the current regulations have several provisions in the party, although is far from perfect, but also to implement a lot of discounts, that makes a lot of "cadre organization of the work of the accountability" and "comeback" by the masses inside and outside the party many doubts and criticisms.
To this end, it is necessary to formulating comprehensive inner-party regulations in this area, "strict accountability for cadres to return conditions, procedures and job arrangements, to ensure accountability (narrow accountability system, namely, political accountability) and legal accountability of party and Government disciplines disposition, effectively interface."
Inspecting a case how to regulate?
Of the 21st century: the Platform proposes to integrate an existing system, study and formulate work cases handled the discipline inspection organs of the CPC regulation, do you think, in regulating the disciplinary inspection and supervision organs handling mainly to address what are the priority issues?
Jiang Mingan: over the years, the Central discipline inspection and supervision organs and the Central Commission for discipline inspection has a case made a number of inner-party regulations and other normative acts. The problem now is that these provisions are too dispersed, "fragmented"; some requirements in the existing requirements, information disclosure requirements of rule of law, and anti-corruption situation develops some provisions to keep up for new anti-corruption mechanisms, such as the network reports, network corruption, there are norms to be effective. Therefore, the Platform calls for consolidating existing provisions on investigating corruption cases, refactoring, add and to develop new case handling work of discipline inspection organs of the CPC regulation, to further improve the handling procedures, standardize case measures, improving the quality of work.
At the same time, to sound networking mechanisms for reporting and processing (such as time limits set to feedback information from informants, provisions accepted, regulation was inadmissible should be justified), network for information collection and disposal mechanism in order to uncover, discover, investigate and deal with corruption cases in a timely manner. In addition, relevant departments of the Central Government recently adjusted its anti-corruption function, and, as found in the record of the Central Commission for discipline inspection on the practice constitutes a crime shall be handed over to judicial organs to investigate cases and is no longer responsible for the command and coordination of the case. This important shift will inevitably also in case handling work of discipline inspection organs of the CPC embodied in regulations.
Of the 21st century: is particularly noteworthy, the platform also proposed to study the development of the Communist Party of China party affairs public regulations, improve inner-party information reporting systems, enhancing transparency in party life. How do you see the meaning of open party affairs public?
Jiang Mingan: building a socialist country with Chinese characteristics, can't open system without the system of open Party Affairs. Because the Chinese Communist Party is different from foreign political parties, also from foreign party. Chinese Communist Party national leadership as a whole belongs to the governance of public authority. Speaking from the requirements of the State ruled by law and governing by law, open Party Affairs of the Communist Party of China is not only issues relating to democracy, but also the country's problems.
In the administrative area of democracy, the State Department has made on 2007, the People's Republic of China Government information disclosure regulations (and the next step will be raised for the national public law), in terms of open Party Affairs, now there is an urgent need to develop the CPC's Party regulations to enhance transparency in the party life. The regulations would also provide for notification system within the party, Party Affairs hearing advisory system, a system of regular comment grassroots leadership of party members, party members attending the meeting of grass-roots Party Committee system, and Congress representatives to attend relevant meetings of the party system.
党内法规立法需要顶层设计
日前，中共中央发布《中央党内法规制定工作五年规划纲要(2013-2017年)》(以下简称《纲要》)。这是中国共产党制订的首个党内法规立法规划。
《纲要》对今后5年中央党内法规制定工作进行统筹安排，提出了指导思想、工作目标、基本要求、主要任务和落实要求，确定了一批党内法规重点制定项目。
“在十八届三中会会通过《全面深化改革若干重大问题的决定》半个月后，党中央就发布了《纲要》，足以说明健全完善党内法规体系对加强和改善党的领导的重要作用。”北京大学法学院教授姜明安对21世纪经济报道记者分析说，同时也说明，这是提高党内法规规范化、体系化建设本身的需要。
姜明安认为，党内法规立法需要顶层设计。建设有中国特色的社会主义法治国家，不能光有政务公开制度而没有党务公开制度。
《21世纪》：为什么要出台党内法规的立法规划？
姜明安：新中国成立以来，特别是改革开放以来，中央和中央部门虽制定了一大批党内法规，但是，由于立法没有整体规划，没有顶层设计，从而党内法规存在“碎片化”现象：许多领域缺少必要的基础主干性的法规，有的领域虽有基础主干性法规，却缺少配套性法规，还有些领域的某些法规存在着相互重复，甚至相互冲突的情形。
尽管经过近年来的法规清理，这些问题得到部分解决，正在减少，但是如果我们现在不抓紧推出党内法规制定规划或规划纲要，特别是中央党内法规制定规划或规划纲要，这些问题不可能得到根本解决，即使旧的问题得到解决，新的问题还会不断产生。因此，适时出台《纲要》，这一顶层设计是提高党内法规规范化、体系化建设本身的需要。
《21世纪》：与一般的立法规划相比，《纲要》有哪些特点？
姜明安：《纲要》在形式上不同于一般的立法规划。立法规划通常只列出拟修改和拟重新制定的党内法规项目，或再将这些项目区分为一级立法项目、二级立法项目，乃至三级立法项目。而《纲要》没有全面列出具体立法项目(可能今后以附件形式发布)，而包括四大部分内容：一是确定党内法规制定的指导思想、工作目标和基本要求，使法规制定主体有所遵循；二是明确党内法规的主要类别(分为党的领导和党的工作、思想建设、组织建设、作风建设、反腐倡廉建设、民主集中制建设六类)和各类别拟修改和拟重新制定的党内法规主要内容(有的直接列举了具体项目，但未全部列举)；
三是对如何提高党内法规制定质量提出要求，以保障党内法规的制定能很好地体现立法目的和立法指导思想；四是对承担制定党内法规的部门和单位如何抓好《纲要》的组织实施提出要求，以保障《纲要》的有效落实。
如何制定党的组织法
《21世纪》：《纲要》为何要提出要抓紧制订《中国共产党党组工作条例》，该《条例》的制定应重点解决哪些问题？
姜明安：《中国共产党党组工作条例》属于组织性的法规。组织法通常规定三方面的内容：一是机关、机构、组织的性质、地位；二是机关、机构、组织的职能、职权、职责；三是机关、机构、组织的活动原则、方式、程序等。
从法治的角度讲，组织法应制定于机关、机构、组织的建立和开展活动之前(行为法则通常制定于机关、机构、组织的建立和开展活动之后)。过去，由于我们不重视法治，组织法制建设一直比较薄弱，不要说党内法规，就是国家法，组织法也很不完善，如省、自治区、直辖市、市、州、县、自治县、乡、镇的人民政府组织法、国务院各部委的组织条例(以“三定办法”的内部文件取代)到目前都不够健全。
现在，我们党强调依法执政，制定《党组工作条例》乃是非常必要的，目的在于理顺党组与所在机关、机构、组织的关系，“既支持人大、政府、政协、司法机关、人民团体依照法律和各自章程独立负责、协调一致地开展工作，支持国有企业和事业单位依法营运，又发挥党组在这些机构中的领导核心作用，保证党的路线方针政策和决策部署得到落实”。为此，《党组工作条例》必须精心地设计，保证这两个方面的协调统一。
《21世纪》：我们注意到，《纲要》提出要修订《关于实行党政领导干部问责的暂行规定》，您认为应该如何修订？
姜明安：问责包括政治性问责和法律性问责。前者主要针对领导责任(不一定有失职、渎职行为)，后者针对违法、违纪、失职、渎职责任；前者的责任形式主要是罢免、引咎辞职、免职、调离岗位、降职等，后者的责任形式主要是党纪政纪处分和追究刑事责任。
所谓“做好被问责干部工作安排”是指对前者责任方式的规范，国家法律法规和党内法规对后者责任方式已有了比较明确的规范。现在的问题是问责主体往往把两种不同性质的责任和责任形式混淆起来。一个领导干部，其对于作为问责缘由的事故、事件等没有失职、渎职行为，自然只负第一种形式的责任；如果其对于作为问责缘由的事故、事件等有失职、渎职行为，就不仅要负第一种形式责任，而且要负第二种形式的责任。
但现在一些问责主体往往以第一种形式责任取代第二种形式的责任，以至于对应负第二种形式责任的领导干部仅以负第一种形式责任取代。以“被问责干部工作安排”的方式任意让他们“复出”。至于对应负第一种形式责任的“被问责干部工作安排”和“复出”，现行党内法规本已有一些规定，虽很不完善，但执行起来还打了不少折扣，以至于使很多“被问责干部的工作安排”和“复出”受到党内外群众诸多质疑、诟病。
为此，有必要抓紧制定完善这方面的党内法规，“严格被问责干部复出条件、程序和职务安排等，保证问责制度(狭义的问责制度，即政治性问责)与党纪政纪处分、法律责任追究制度有效衔接”。
纪检机关办案如何规范？
《21世纪》：《纲要》提出应整合已有相关制度规定，研究制定《中国共产党纪律检查机关案件办理工作条例》，您认为，在规范纪检机关办案方面主要解决哪些重点问题？
姜明安：多年来，中央和中纪委已就纪检机关办案工作制定了多项党内法规和其他规范性文件。现在的问题是，这些规定过于分散、“碎片化”；有些规定与现时的法治要求、信息公开要求不符，有些规定跟不上反腐形势的发展，对新的反腐机制，如网络举报、网络反腐，没有予以有效的规范。因此，《纲要》要求对有关查办腐败案件的现有规定进行整合、重构、补充，研究制定新的《中国共产党纪律检查机关案件办理工作条例》，以进一步完善办案程序，规范办案措施，提高办案质量。
同时，要健全网络举报和受理机制(如规定向举报人反馈信息、规定受理的时限、规定不予受理应说明理由等)、网络信息收集和处置机制，以及时揭露、发现、查处腐败案件。另外，中央最近调整了反腐败有关部门的职能定位，，如中纪委对执纪中发现的构成犯罪的案件一律移交司法机关查处并不再负责案件的具体指挥协调工作。这一重要转变必然也要在《中国共产党纪律检查机关案件办理工作条例》中体现出来。
《21世纪》：特别值得注意的是，《纲要》还提出要研究制定《中国共产党党务公开条例》，健全党内情况通报制度，增强党内生活透明度。您如何看待党务公开条例制定的意义？
姜明安：建设有中国特色的社会主义法治国家，不能光有政务公开制度而没有党务公开制度。因为中国共产党不同于外国的一般政党，也不同于外国的一般执政党。中国共产党对国家整个事务的领导行为属于治国理政的公权力行为。从法治国家和依法执政的要求讲，中国共产党的党务公开不仅涉及党内民主的问题，而且涉及国家民主的问题。
在政务民主方面，国务院已经于2007年制定了《中华人民共和国政府信息公开条例》(并且下一步将上升为国家信息公开法律)，在党务公开方面，现在就迫切需要制定《中国共产党党务公开条例》，以增强党内生活透明度。《条例》还将规定党内情况通报制度、党内事务听证咨询制度、党员定期评议基层党组织领导班子制度、党员旁听基层党委会议制度，以及党代会代表列席同级党委有关会议制度等。
赞