我国行政首长出庭应诉制度研究

1SOOCHOWUNIVERSITY硕士学位论文论文题目我国行政首长出庭应诉制度研究研究生姓名顾勤芳指导教师姓名章志远专业名称宪法学与行政法学研究方向行政诉讼法论文提交日期2013年4月我国行政首长出庭应诉制度研究中文摘要I中文摘要从发文主体、出庭应诉首长、出庭案件类型、出庭应诉率、出庭具体要求、不出庭责任等多维度检视行政首长出庭应诉制度的文本规范，从社会认同度、应诉心态、出庭效果等方面考察行政首长出庭应诉制度的实践运作，发现行政首长出庭应诉制度已上升为当前行政审判的中心制度，成为行政机关依法执政的重要抓手。但行政首长出庭应诉制度仍面临理论争议、文本混杂、实践错位三大困境。从宪法、行政法、诉讼法角度探索行政首长出庭应诉制度的法理基础；通过评析现有的规范进路，提出未来“三步曲”的构想；建立包括事前的司法建议、事中的评价以及事后的监督等一系列程序性配套机制，同时在实体性方面明确出庭案件的类型、坚持协调处理机制。提出将行政首长出庭应诉制度纳入《行政诉讼法》的修改，希冀对开放合作型行政审判模式的开展有所裨益。关键词：行政首长出庭应诉行政首长负责制内部行政程序作者：顾勤芳指导教师：章志远AbstractTheSystemofChiefExecutivesAppearinginCourtandParticipatinginProceedingsIITheSystemofChiefExecutivesAppearinginCourtandParticipatinginProceedingsAbstractFromthevariousinspectionofthesubjectofissuingdocuments,chiefmagistrateincourt,typesincourtcases,courtinvestigationsrate,specificrequirementsincourtandtheresponsibilityofnotappearingincourttotextthesystemofchiefexecutivesappearingincourtandparticipatingintheproceedings.Fromtheaspectsofsocialidentity,responsetosuitsmentality,appearingincourteffecttoinvestigatethepracticaloperationsofthesystemofchiefexecutivesappearingincourtandparticipatingintheproceedings,discoveringthatthesystemhasrisentothecurrentadministrativeadjudication,becomeanimportantmeansofrulingbyadministrativeorgansaccordingtolaw.Butthesystemstillfacesadilemmaofcontroversialtheory,texthybridandpracticedislocation.Searchthelegalbasisbyconstitutionaljurisprudence,administrativejurisprudenceandprocedurallaw.Putforwardthe“3pacesmusic”infuturebycommentingonthethestandardapproach.Establishaseriesofproceduralmeasureslikethejudicialsuggestionsbeforehand,themechanismofevaluation,intendanceafterthought.Toclearthecasetype,adheretothecoordinationmechanismonsubstantiveaspects.Throwoutasuggestionthatthesystemofchiefexecutivesappearingincourtandparticipatingintheproceedingsshouldbebringintotheamendingofthelawofexecutiveaccusationandhopethatwillpromotetheprocessofopencooperativeadministrativetrialmode.Keywords:thechiefexecutives;appearincourtandparticipateintheproceedings;theadministrativechiefsresponsibilitysystem；theinternaladministrativeproceduresWrittenbyGUQin-fangSupervisedbyZHANGZhi-yuan目录引言·····························································································1（一）研究缘起···········································································1（二）研究现状···········································································2（三）研究思路、方法及创新··························································3一、我国行政首长出庭应诉制度的运作概况··············································6（一）文本分析···········································································6（二）实践考察···········································································9二、我国行政首长出庭应诉制度的现实困境·············································12（一）理论争议··········································································12（二）文本混杂··········································································14（三）实践错位··········································································17三、我国行政首长出庭应诉制度的正当性证成··········································20（一）宪法基础··········································································20（二）行政法基础·······································································21（三）诉讼法基础·······································································23四、行政首长出庭应诉制度的规范进路···················································26（一）现有规范进路之评析····························································26（二）未来规范进路之构想····························································27五、行政首长出庭应诉制度的配套机制···················································30（一）程序上的配套机制······························································30（二）实体上的配套机制······························································32六、结语·························································································34参考文献·························································································35攻读硕士期间公开发表的论文······························································39致谢····························································································40我国行政首长出庭应诉制度研究引言1引言（一）研究缘起我国《行政诉讼法》开始实施于1990年，迄今已有20余年。回顾20年历程，《行政诉讼法》的命运可谓悲喜参半。喜的是《行政诉讼法》在全国范围内确立了“民告官”的诉讼制度，将行政机关的行政行为纳入司法审查的范围，提高行政机关依法行政的意识，并保障公民、法人和其他组织的合法权益，是中国法治建设中的里程碑。悲的是承载学者和人民殷切期待的《行政诉讼法》在实施过程中遭遇诸多困境、效果不佳，一次次让学者和民众失落和悲叹。表现之一为行政机关首长并未转变“官本位”观念，仍受到“官管民，官审民”的思想桎梏。曾有一经典案例：某镇镇长，在接到法院送达给镇政府的传票后，提起红笔一圈，写了一行字：“我是一镇之长，农民怎么能让法院给我发传票？”充分体现行政机关一贯凌驾于民众和法院的心理，将出庭应诉的要求视作无稽之谈。①因此，2012年5月，“九旬老人起诉县政府，女县长出庭应诉”②的消息一出，引发全国巨大轰动。原告谢步英因宅基地争议起诉县政府，而作为行政机关“一把手”的海安县县长单晓鸣亲自出庭应诉，这在各地“民告官不见官”的背景下格外夺人眼球。舆论媒体更将这一全国独一无二的现象称为“海安样本”并进行大力宣传。如此开足马力的造势愈发昭显行政首长出庭应诉的鲜有现状以及行政审判面临的尴尬境地：“法官审案不见官”、被告“不答辩、不举证、不出庭、不执行判决”甚至干预司法致使司法权威严重受挫，行政审判举步维艰。然自2002年全面修改《行政诉讼法》的动议摆上全国人大的议事日程，现已演化成强大的呼声和动力。“把行政诉讼提升到何种地位，法院拥有何种限度的审查权力才为正当和合理，是这次修订《行政诉讼法》和变革我国行政诉讼制度须解决的首要问题”③。其中，行政首长出庭应诉是否载入《行政诉讼法》成为重要的争议点。一方面，最高人民法院、国务院各自出台一系列政策和规定力推行政首长出庭应诉制度的建立。同时，各地纷纷制定行政首长出庭应诉制度规范文本①参见舒泰峰：《温州“民告官”经验》，