行政效能监察工作的问题及对策研究
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摘要
我国行政效能监察工作取得了一些成绩,主要表现在:行政效能监察工作机制初见规模,行政效能监察长效机制初步建立,行政效能监察投诉机制正在形成,电子监察手段逐步推广,行政问责逐渐制度化,机关效能建设初显成效。虽然行政效能监察取得了阶段性的成绩,但是各地的效能监察开展不平衡,内容不统一,方式单一。究其原因:一是行政效能监察的理论研究不足,其理论依据和理论基础均比较乏力,对行政效能监察主体、内容、方式、标准、惩戒手段等均缺乏深入的研究或统一的实践操作模式。二是行政效能监察体制不合理。纪委和监察合并是把双刃剑,一方面增强了监督的合力,但也削弱了监察的独立性。事实上,监察成为纪委的附属机构。三是行政效能监察工作机制不健全。目前各地普遍把行政效能监察的主体定位于行政监察机关,实行在政府领导下的由行政监察机关开展效能监察的工作格局。四是行政效能监察法规体系不完善。我国没有统一的行政效能监察法规或规范性文件,相关的配套法规、程序制度也没有颁布,导致各地的行政效能监察各有不同。
针对存在的问题,本文提出六点对策:一是健全行政效能监察体制机制,具体包括:建立健全行政效能监察的领导机制、建立健全行政效能监察的大宣传教育格局、建立健全行政效能监察投诉机制。二是完善行政效能监察法规。扩大行政监察职权,赋予行政效能监察主体经济审计权、监察决定权和经济处罚权;出台公务员管理的配套法规,如公务员财产立法、公务员行为立法等。三是改进行政效能监察方法:实行事前、事中和事后全过程行政效能监察;推行单点切入、多点切入和重点切入三种监察方式,促进政府部门整体规范办事程序;逐步推广电子效能监察手段和积极开展效能评议。四是尝试进行政府绩效管理与评估。通过建立科学、规范的政府评价制度和指标体系,完善评价的主体和方法来提高行政部门的绩效,提升行政机关的效能。五是大力推行行政问责。六是把握和处理好行政效能监察与行政效能建设的关系、行政效能监察与其他监督检查的关系、查处个案与促进整体效能提高的关系、服务政府中心工作与独立依法行使职权的关系。
Supervision of administrative efficiency achieved some results, mainly: administrative efficiency monitoring system has shown signs of scale, administrative efficiency and long-term mechanism to monitor the initial establishment of administrative efficiency and to monitor complaints mechanisms are taking shape, the electronic monitoring means to gradually extend, the accountability gradually institutionalized, bureaucratic efficiency paying off. Although administrative efficiency supervision has achieved success, but the effectiveness of monitoring carried out around the imbalance, the content is not unified in a single way. Reasons: First, the theory of administrative efficiency and lack of supervision, its theoretical basis and theoretical foundations are relatively weak, the main administrative efficiency supervision, content, methods, standards, disciplinary measures Deng Jun-depth studies or the lack of uniform practice modes . The second is unreasonable administrative performance monitoring system. Commission for Discipline Inspection and monitoring of the merger is double-edged sword, on the one hand enhance the supervision of force, but also undermine the independence of the monitoring. In fact, the monitoring of a Commission for Discipline Inspection of the subsidiary bodies. Third, administrative efficiency supervision mechanism is not perfect. Across the country to monitor the general performance of the main body of the executive located in administrative, implemented under the leadership of the Government carried out by the administrative supervisory authorities to monitor the performance of the work. Fourth, inadequate administrative efficiency supervision and regulation system. China is no uniform regulations or administrative performance monitoring of regulatory documents, related laws and regulations have not promulgated procedures for the system, resulting in the administrative performance monitoring across their own priorities.
The existing problems, this paper proposes six measures: First, administrative efficiency and improve monitoring mechanisms, including: establishing and improving administrative efficiency and leadership mechanism to monitor, establish and improve administrative efficiency and to monitor the pattern of major publicity and education, establish and improve administrative efficiency and to monitor the complaints system. Second, improve the administrative efficiency supervision and regulations. Expand the powers of administrative supervision, administrative efficiency supervision given to the right of the main economic audit, monitoring decisions and economic punishment. In addition, we introduced legislation supporting the civil service management, property legislation such as the civil service, civil servants and other acts of legislation. Third, improve the administrative effectiveness of surveillance: the introduction of pre-, during and after the whole process of supervision over administrative efficiency; introduction of single point of intercept, intercept and focus more cut into the three types of monitoring methods, and promote the overall standard government procedures; gradually extend electronic performance monitoring performance appraisal tools and active. Fourth, try the Government Performance Management and Evaluation. Through the creation of scientific and standardized system of government evaluation systems and indicators, improve the evaluation of the subject and the methods to improve the performance of the executive branch to improve the performance of the executive. Fifth, strong administrative accountability. Sixth, to grasp and handle the administrative efficiency and to monitor the relationship between construction and administrative efficiency, administrative efficiency supervision with other supervision and inspection of the relationship between the investigation of cases to improve overall performance and promotion of the relationship between work and independent government service center duties according to law relationship.
针对存在的问题,本文提出六点对策:一是健全行政效能监察体制机制,具体包括:建立健全行政效能监察的领导机制、建立健全行政效能监察的大宣传教育格局、建立健全行政效能监察投诉机制。二是完善行政效能监察法规。扩大行政监察职权,赋予行政效能监察主体经济审计权、监察决定权和经济处罚权;出台公务员管理的配套法规,如公务员财产立法、公务员行为立法等。三是改进行政效能监察方法:实行事前、事中和事后全过程行政效能监察;推行单点切入、多点切入和重点切入三种监察方式,促进政府部门整体规范办事程序;逐步推广电子效能监察手段和积极开展效能评议。四是尝试进行政府绩效管理与评估。通过建立科学、规范的政府评价制度和指标体系,完善评价的主体和方法来提高行政部门的绩效,提升行政机关的效能。五是大力推行行政问责。六是把握和处理好行政效能监察与行政效能建设的关系、行政效能监察与其他监督检查的关系、查处个案与促进整体效能提高的关系、服务政府中心工作与独立依法行使职权的关系。
Supervision of administrative efficiency achieved some results, mainly: administrative efficiency monitoring system has shown signs of scale, administrative efficiency and long-term mechanism to monitor the initial establishment of administrative efficiency and to monitor complaints mechanisms are taking shape, the electronic monitoring means to gradually extend, the accountability gradually institutionalized, bureaucratic efficiency paying off. Although administrative efficiency supervision has achieved success, but the effectiveness of monitoring carried out around the imbalance, the content is not unified in a single way. Reasons: First, the theory of administrative efficiency and lack of supervision, its theoretical basis and theoretical foundations are relatively weak, the main administrative efficiency supervision, content, methods, standards, disciplinary measures Deng Jun-depth studies or the lack of uniform practice modes . The second is unreasonable administrative performance monitoring system. Commission for Discipline Inspection and monitoring of the merger is double-edged sword, on the one hand enhance the supervision of force, but also undermine the independence of the monitoring. In fact, the monitoring of a Commission for Discipline Inspection of the subsidiary bodies. Third, administrative efficiency supervision mechanism is not perfect. Across the country to monitor the general performance of the main body of the executive located in administrative, implemented under the leadership of the Government carried out by the administrative supervisory authorities to monitor the performance of the work. Fourth, inadequate administrative efficiency supervision and regulation system. China is no uniform regulations or administrative performance monitoring of regulatory documents, related laws and regulations have not promulgated procedures for the system, resulting in the administrative performance monitoring across their own priorities.
The existing problems, this paper proposes six measures: First, administrative efficiency and improve monitoring mechanisms, including: establishing and improving administrative efficiency and leadership mechanism to monitor, establish and improve administrative efficiency and to monitor the pattern of major publicity and education, establish and improve administrative efficiency and to monitor the complaints system. Second, improve the administrative efficiency supervision and regulations. Expand the powers of administrative supervision, administrative efficiency supervision given to the right of the main economic audit, monitoring decisions and economic punishment. In addition, we introduced legislation supporting the civil service management, property legislation such as the civil service, civil servants and other acts of legislation. Third, improve the administrative effectiveness of surveillance: the introduction of pre-, during and after the whole process of supervision over administrative efficiency; introduction of single point of intercept, intercept and focus more cut into the three types of monitoring methods, and promote the overall standard government procedures; gradually extend electronic performance monitoring performance appraisal tools and active. Fourth, try the Government Performance Management and Evaluation. Through the creation of scientific and standardized system of government evaluation systems and indicators, improve the evaluation of the subject and the methods to improve the performance of the executive branch to improve the performance of the executive. Fifth, strong administrative accountability. Sixth, to grasp and handle the administrative efficiency and to monitor the relationship between construction and administrative efficiency, administrative efficiency supervision with other supervision and inspection of the relationship between the investigation of cases to improve overall performance and promotion of the relationship between work and independent government service center duties according to law relationship.
引文
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[5]马春庆.为何用“行政效能”取代“行政效率”——兼论行政效能建设的内容和意义.中国行政管理,2003,62
[6]傅奎.监察机关开展行政效能监察的回顾与展望.中国发展研究基金会报告,2007,127
[7]陈歧山.试论行政效能监察的必要性与可行性.见:效能监察理论研究与实践.北京:中国检察出版社,2000,70
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[13]李瑞环.学哲学用哲学(上).北京:中国人民大学出版社,2005,85-89
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[16]李利君.关于效能监察的思考.见:新时期反腐倡廉研究文集.湖南省监察学会,2007,66-67
[17]杨敏之.解读权力.长沙:湖南人民出版社,2003,62-63
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[19]唐斌成.借鉴我国古代监察制度进一步完善现行监督体制的几点思考.见:新时期反腐倡廉研究文集.湖南省监察学会,2007,387
[20]王道德.浅谈改革和完善党的纪律检查体制.见:新时期反腐倡廉研究文集.湖南省监察学会,2007,402
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[22]江泽民.全面建设小康社会开创中国特色社会主义事业新局面——在中国共产党第十六次全国代表大会上的报告.北京:人民日报出版社,2002,5
[23]王丽沙.加强行政效能监察要有新思路新举措.见:新时期反腐倡廉研究文集.湖南省监察学会,2007,262
[24]孙载夫.防治腐败体系研究.北京:中国方正出版社,2004,204-205
[25]韩正.加快建设服务政府、责任政府、法治政府.学习与研究.2006,5:18
[26]郭小聪.政府经济学.北京:中国人民大学出版社,2003,59-60
[27]吴章玉.关于加强和完善行政监察职能问题研究.见:社会科学优秀论文选.长沙:湖南大学出版社,2002,120
[28]许显辉.行政程序基本理论.长沙:湖南人民出版社,2008,67
[29]张维明.信息技术及其应用.北京:中国人民大学出版社,2001,209
[30]陈振明.公共管理原理.北京:中国人民大学出版社,2003,241
[31](澳)欧文·E·休斯.公共管理导论.北京:中国人民大学出版社,2001,21
[32]Behn R D.Why measure performance? different purposes require different measures.Public Administration Review,2003,63
[33]Donald E.Chambers,Kenneth R.Wedel,Mary K.Rodwel.Evwluating Social Programs.Ncedham Hights,Allyn and Bacon,1992,(5)
[34]Flwisher C S.Managing the grassroots and assessing its performance.Journal of Public affairs,2003,3
[35]Arie Halachmi.Goverment reforms and public productivity:Do we have all the answers?Work Study,1997,(7)
[36]Jorg B.Perlormance measure congruity and the balanced scorecard.Journal of Accounting research,2007,45
[37]刘辉.中国政府的管理创新.北京:中国社会科学出版社,2004,167
[38]华维真.对政府机关实施绩效管理的几点认识.江南论坛,2002,9
[39](美)詹姆斯·Q·威尔逊.美国官僚政治:政府机构的行为及其动因.北京:中国社会科学出版社,1995,289
[40](美)戴维,奥斯本等.摒弃官僚制:政府再造的五项战略.北京:中国人民大学出版社,2002,326
[41]王阳.转型时期地方政府定位.北京:人民出版社,2005,155
[42](美)阿里·哈拉契米.政府业绩与质量测评.广州:中山大学出版社,2003,45
[43]皮纯协,张成福.行政法学.北京:中国人民大学出版社,2002,386-392
[44](美)苏珊·罗斯·艾克曼.腐败与政府.北京:新华出版社,2000,212-214
[45]孟德斯鸠.论法治精神.北京:商务印书馆,1982,154-155
[46]福建行政学院.转型期地方政府效能建设.福州:海潮摄影艺术出版社,2003,13
[47]郭小聪.以行政监察促高效行政的若干问题.社会科学,1995,(9):18
[48]唐琦玉.刍议行政效能监察.行政论坛,2004,(3):33
[49]闵绪国,龙钰.行政效能全过程监察及其实现.云南行政学院学报,2006,(2):55-57
[50]覃先锋.机关效能建设与机构改革实务全书.长春:银声音像出版社,2004,127
[2]徐世义.提高行政效能的理论与实践.北京:人民出版社,2004,15
[3]张郧.论行政管理动态系统中的效能、效率与效益——兼评有关著述对行政“三效”的观点.特区理论与实践,1996,125
[4]张今声.政府行为与效能——政府改革的深层次透视.北京:中国计划出版社,2001,131
[5]马春庆.为何用“行政效能”取代“行政效率”——兼论行政效能建设的内容和意义.中国行政管理,2003,62
[6]傅奎.监察机关开展行政效能监察的回顾与展望.中国发展研究基金会报告,2007,127
[7]陈歧山.试论行政效能监察的必要性与可行性.见:效能监察理论研究与实践.北京:中国检察出版社,2000,70
[8]毛昭晖.中国行政效能监察——理论、模式与方法.北京:中国人民大学出版社,2007,163-164
[9]刘虹,董秀芬.效能监察.北京:中国方正出版社,2004,80-83
[10]伍华要.破解行政效能监察的“两难”难题.见:提高纪检机关监督能力的探索与实践.中共湖南省纪委调研法规室,2007,42
[11]郝锐.关于提高行政效能的看法.法制与社会,2007,6
[12]中央纪委监察部教材编审委员会.纪检监察概论.北京:中国方正出版社,2008,157
[13]李瑞环.学哲学用哲学(上).北京:中国人民大学出版社,2005,85-89
[14]中央纪委监察部教材编审委员会.执法监察教程.北京:中国方正出版社,2007,9
[15]敖建斌.加强行政效能监察之我见.见:新时期反腐倡廉研究文集.湖南省监察学会,2007,257-259
[16]李利君.关于效能监察的思考.见:新时期反腐倡廉研究文集.湖南省监察学会,2007,66-67
[17]杨敏之.解读权力.长沙:湖南人民出版社,2003,62-63
[18]贾丹梅.我国政府行政效能监察机制研究[电子科技大学硕士学位论文].2008,22
[19]唐斌成.借鉴我国古代监察制度进一步完善现行监督体制的几点思考.见:新时期反腐倡廉研究文集.湖南省监察学会,2007,387
[20]王道德.浅谈改革和完善党的纪律检查体制.见:新时期反腐倡廉研究文集.湖南省监察学会,2007,402
[21]徐复林.关于科学构建监察监督体系的思考.见:新时期反腐倡廉研究文集.湖南省监察学会,2007,532
[22]江泽民.全面建设小康社会开创中国特色社会主义事业新局面——在中国共产党第十六次全国代表大会上的报告.北京:人民日报出版社,2002,5
[23]王丽沙.加强行政效能监察要有新思路新举措.见:新时期反腐倡廉研究文集.湖南省监察学会,2007,262
[24]孙载夫.防治腐败体系研究.北京:中国方正出版社,2004,204-205
[25]韩正.加快建设服务政府、责任政府、法治政府.学习与研究.2006,5:18
[26]郭小聪.政府经济学.北京:中国人民大学出版社,2003,59-60
[27]吴章玉.关于加强和完善行政监察职能问题研究.见:社会科学优秀论文选.长沙:湖南大学出版社,2002,120
[28]许显辉.行政程序基本理论.长沙:湖南人民出版社,2008,67
[29]张维明.信息技术及其应用.北京:中国人民大学出版社,2001,209
[30]陈振明.公共管理原理.北京:中国人民大学出版社,2003,241
[31](澳)欧文·E·休斯.公共管理导论.北京:中国人民大学出版社,2001,21
[32]Behn R D.Why measure performance? different purposes require different measures.Public Administration Review,2003,63
[33]Donald E.Chambers,Kenneth R.Wedel,Mary K.Rodwel.Evwluating Social Programs.Ncedham Hights,Allyn and Bacon,1992,(5)
[34]Flwisher C S.Managing the grassroots and assessing its performance.Journal of Public affairs,2003,3
[35]Arie Halachmi.Goverment reforms and public productivity:Do we have all the answers?Work Study,1997,(7)
[36]Jorg B.Perlormance measure congruity and the balanced scorecard.Journal of Accounting research,2007,45
[37]刘辉.中国政府的管理创新.北京:中国社会科学出版社,2004,167
[38]华维真.对政府机关实施绩效管理的几点认识.江南论坛,2002,9
[39](美)詹姆斯·Q·威尔逊.美国官僚政治:政府机构的行为及其动因.北京:中国社会科学出版社,1995,289
[40](美)戴维,奥斯本等.摒弃官僚制:政府再造的五项战略.北京:中国人民大学出版社,2002,326
[41]王阳.转型时期地方政府定位.北京:人民出版社,2005,155
[42](美)阿里·哈拉契米.政府业绩与质量测评.广州:中山大学出版社,2003,45
[43]皮纯协,张成福.行政法学.北京:中国人民大学出版社,2002,386-392
[44](美)苏珊·罗斯·艾克曼.腐败与政府.北京:新华出版社,2000,212-214
[45]孟德斯鸠.论法治精神.北京:商务印书馆,1982,154-155
[46]福建行政学院.转型期地方政府效能建设.福州:海潮摄影艺术出版社,2003,13
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