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试述行政法治原则的主要要求

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(一)依法行政 政府应依法行政,依法办事,这是任何时代、任何国度法治原则对政府行为的要求,要求行政活动要有合法性,即使其活动具有正当性令人信服、服从。不得违宪,是合法性的最高要求和核心,是现代民主社会的根本特点。依法的 “法”,包括法律、法规、规章。法律的效力高于法规、规章;法规、规章的原则、内容不得与法律相抵触。法律、法规、规章发生冲突,应以法律为准。依法的内容包括依法定权限、法定实体规则和法定程序。未遵循法定要求的,均构成对法治原则的违反。 依法行政首先是对政府执法行为的要求,同时也是对立法的要求。只有有法可依才谈得上依法行政。立法包括权力机关的立法和行政机关的立法。权力机关的立法主要是制定基准性规范。行政机关的立法主要制定从属性、执行性规范。法治原则要求政府机关加强行政法规和规章的制定,使大量的政府行为有章可循,以最大限度地减少政府行为的任意性及其导致的不公正和腐败。依法制定和发布行政法规、规章,不仅是政府的一项权力,更是政府的职责。 (二)职权法定 职权法定,指政府、行政机关的职权,必须由法律规定。从内部而言,超越职权就是横向超越了另一个机关的职权:对外而言,超越职权就会侵犯公民的合法权益。职权法定,越权无效,是法律保留的一个重要原则。相对于公民权利的法无禁止即自由来说,行政机关不仅在法律禁止的情形下不得为之,在一定的范围内,在法律没有授权的情形下也不得作为,否则,就是超越职权。职权法定是由我国人民主权的国家性质所决定的。对行政机关而言,行政行为不得违反法律,行政行为的权力来源要有法律的明文依据。因为行政机关是执行法律的机关,不能给自己授权,人民授权形式即是法律规定。行政处罚、行政强制措施、行政许可、行政收费等行政行为,都不是行政机关的当然权限,都需要法定。即使是行政机关的职权范围内的事项,也并不意味着其有权采取任何手段达成自己行政经管的目的。 职权法定的核心是: 行政权力的取得和存在必须有法律依据, 没有法律依据的行政权从根本上说是一种非法的权力; 行政主体必须在法律规定的权限范围内行使其行政职权, 必须依据法定的程序; 法定职权之外的事务由私人通过自治方式解决。职权法定要求行政主体不得越权,如果越权则不具有法律效力。这是因为,法律效力必须法律授予,如不在法律授权范围内,它就在法律上站不住脚。行政职权法定的法理意义在于,它明示了行政权是有限的、可数的,并为行政机关划定了行使行政权的外围边界。 (三)控制自由裁量权 行政自由裁量权是法律、法规赋予行政执法机关在行政经管过程中依据立法目的和公正合理原则自行判断行为条件、自行选择行为方式和自由做出行政决定的权力。即依照法律所确定的原则、目的、精神、范围和幅度,在实施行政行为的过程中,行政执法主体基于客观实际情况,通过主观的合理判断做出灵活选择的权力。在我国, 80% 以上的法律, 90% 以上的法规和规章是由行政部门负责执行。法律的稳定性、现实的复杂性、立法者的局限性以及法律条文表述的概括性决定了行政权力中自由裁量权存在的必然性。 现代法治国家权力的授予与控制总是相伴而行的, 控制行政自由裁量权是依法行政、 依法治国和建设社会主义法治国家的必然要求。 权力本质具有自我腐蚀和自我扩张的特性, 因此对权力的规范和约束就成为权力健康运行的一条规律。行政自由裁量权作为行政权力的一种,同样必须加以控制。人类几千年的历史经验表明, “每个被授予权力的人都易于滥用权力,并且易于将他的权力用到极限 ”( 孟德斯鸠 )。滥用行政自由裁量权违背了法律授权的目的和意愿, 干扰和破坏了法制秩序, 具有很大的危害性。因此,对自由裁量权必须加以控制。 (四)权责一致 作为一个法治政府,应该带头守法,切实保障公民的合法权益不受侵犯。如果其行为违法越权,侵犯公民、法人或其他组织的合法权益,则应依法承担法律责任;如其行为造成公民、法人或其他组织人身权、财产权的损害,则应依法赔偿受害者的损失。对其违法行为是否承担法律责任,是区别法治政府和专制政府的一个重要标志。人治政府自身不受法律约束,用法治理老百姓,本身不守法,违法侵权不赔偿,不承担法律责任。法治政府则应对人民负责,并自觉接受人民监督,权为民所用,利为民所谋。因此,作为人民的政府,必须有权必有责、用权受监督,违法要追究,侵权要赔偿,切实负起责任。

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