cciia.org.cn 2022-11-21 12:40:32 新華網
黨的二十大報告指出，要(yao)扎(zha)實推(tui)進依法行(xing)政(zheng)，提高行(xing)政(zheng)效(xiao)率和(he)公信力(li)。為深(shen)(shen)入貫徹落實黨中央、國(guo)務院關于深(shen)(shen)化“放管(guan)服”改革(ge)、優(you)化營商(shang)環(huan)境的決策部(bu)署，國(guo)務院辦公廳(ting)在湖北(bei)、浙江、河北(bei)省開展一(yi)年的行(xing)政(zheng)備案規(gui)范(fan)管(guan)理(li)(li)改革(ge)試點(dian)基礎(chu)上，于近(jin)日印發(fa)了《關于推(tui)廣行(xing)政(zheng)備案規(gui)范(fan)管(guan)理(li)(li)改革(ge)試點(dian)經驗的通知》，要(yao)求(qiu)各地區各部(bu)門高度(du)重視行(xing)政(zheng)備案規(gui)范(fan)管(guan)理(li)(li)工(gong)作(zuo)，加強行(xing)政(zheng)備案規(gui)范(fan)化、法治化建設。這一(yi)部(bu)署切(qie)口雖小(xiao)，但對扎(zha)實推(tui)進依法行(xing)政(zheng)意義重大。
行政備案的增量控制和存量優化
行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)案(an)(an)是(shi)(shi)指行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)機關(guan)(guan)根據公(gong)民、法(fa)(fa)(fa)人或(huo)(huo)者(zhe)其他(ta)組織依法(fa)(fa)(fa)報送或(huo)(huo)者(zhe)申(shen)請的(de)(de)相(xiang)關(guan)(guan)材料，予以(yi)存(cun)(cun)檔備(bei)(bei)(bei)(bei)(bei)查的(de)(de)行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)為，是(shi)(shi)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)府(fu)依法(fa)(fa)(fa)對(dui)(dui)社會、經濟、文(wen)(wen)化(hua)等各方(fang)面(mian)事(shi)(shi)務實(shi)行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)監督管理(li)的(de)(de)一種(zhong)重要(yao)(yao)(yao)手(shou)段(duan)。從(cong)(cong)上個世紀80年(nian)代開始，我國有關(guan)(guan)行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)案(an)(an)的(de)(de)規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)(ding)呈現(xian)(xian)出(chu)(chu)不(bu)斷增(zeng)(zeng)(zeng)長的(de)(de)趨勢。特別(bie)是(shi)(shi)自《行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)許(xu)可(ke)(ke)法(fa)(fa)(fa)》2004年(nian)實(shi)施以(yi)來(lai)，在國務院(yuan)審改(gai)辦和(he)立(li)法(fa)(fa)(fa)機關(guan)(guan)的(de)(de)嚴(yan)格把關(guan)(guan)下，新設行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)許(xu)可(ke)(ke)受到嚴(yan)格控(kong)(kong)制(zhi)，行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)案(an)(an)則(ze)成為“避風港”或(huo)(huo)者(zhe)“灰(hui)色(se)地帶”，越來(lai)越多地出(chu)(chu)現(xian)(xian)在各類規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)(ding)中。此外(wai)(wai)，隨著行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)審批制(zhi)度改(gai)革(ge)的(de)(de)深入，行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)許(xu)可(ke)(ke)事(shi)(shi)項被(bei)大量(liang)壓減(jian)，行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)案(an)(an)被(bei)作(zuo)為一種(zhong)替代性(xing)管理(li)措施，被(bei)運用于政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)府(fu)管理(li)的(de)(de)各個方(fang)面(mian)。這(zhe)就導致了行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)案(an)(an)事(shi)(shi)項過多過濫(lan)的(de)(de)問題(ti)，不(bu)少行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)規(gui)(gui)(gui)(gui)(gui)范(fan)(fan)(fan)性(xing)文(wen)(wen)件(jian)，甚至國務院(yuan)部門司局文(wen)(wen)件(jian)就可(ke)(ke)以(yi)設定(ding)(ding)(ding)(ding)(ding)(ding)行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)案(an)(an)，有的(de)(de)行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)案(an)(an)甚至規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)(ding)不(bu)經過行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)機關(guan)(guan)審查同(tong)意(yi)，申(shen)請人就不(bu)能從(cong)(cong)事(shi)(shi)特定(ding)(ding)(ding)(ding)(ding)(ding)活動，這(zhe)與(yu)行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)許(xu)可(ke)(ke)并無本質區別(bie)。針對(dui)(dui)這(zhe)一問題(ti)，行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)案(an)(an)規(gui)(gui)(gui)(gui)(gui)范(fan)(fan)(fan)管理(li)需(xu)要(yao)(yao)(yao)明確(que)設定(ding)(ding)(ding)(ding)(ding)(ding)權(quan)限，對(dui)(dui)行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)案(an)(an)予以(yi)增(zeng)(zeng)(zeng)量(liang)控(kong)(kong)制(zhi)和(he)存(cun)(cun)量(liang)優(you)化(hua)。在增(zeng)(zeng)(zeng)量(liang)控(kong)(kong)制(zhi)上，必(bi)須嚴(yan)格設定(ding)(ding)(ding)(ding)(ding)(ding)標準，不(bu)得(de)隨意(yi)增(zeng)(zeng)(zeng)設行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)案(an)(an)。對(dui)(dui)此，《通知》規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)(ding)要(yao)(yao)(yao)加強(qiang)行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)案(an)(an)規(gui)(gui)(gui)(gui)(gui)范(fan)(fan)(fan)化(hua)、法(fa)(fa)(fa)治化(hua)建(jian)設，嚴(yan)格設定(ding)(ding)(ding)(ding)(ding)(ding)要(yao)(yao)(yao)求，對(dui)(dui)行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)案(an)(an)事(shi)(shi)項不(bu)得(de)規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)(ding)經行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)機關(guan)(guan)審查同(tong)意(yi)，企(qi)業和(he)群(qun)眾方(fang)可(ke)(ke)從(cong)(cong)事(shi)(shi)相(xiang)關(guan)(guan)特定(ding)(ding)(ding)(ding)(ding)(ding)活動。筆者(zhe)認(ren)為，除此之(zhi)外(wai)(wai)，下一步還需(xu)要(yao)(yao)(yao)通過立(li)法(fa)(fa)(fa)對(dui)(dui)什么層(ceng)(ceng)級的(de)(de)法(fa)(fa)(fa)規(gui)(gui)(gui)(gui)(gui)文(wen)(wen)件(jian)可(ke)(ke)以(yi)設定(ding)(ding)(ding)(ding)(ding)(ding)行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)案(an)(an)作(zuo)出(chu)(chu)規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)(ding)。尤其要(yao)(yao)(yao)是(shi)(shi)對(dui)(dui)行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)規(gui)(gui)(gui)(gui)(gui)范(fan)(fan)(fan)性(xing)文(wen)(wen)件(jian)、或(huo)(huo)者(zhe)什么層(ceng)(ceng)級的(de)(de)行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)規(gui)(gui)(gui)(gui)(gui)范(fan)(fan)(fan)性(xing)文(wen)(wen)件(jian)能夠設定(ding)(ding)(ding)(ding)(ding)(ding)行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)案(an)(an)，作(zuo)進一步研究論證，并在立(li)法(fa)(fa)(fa)中予以(yi)明確(que)。在存(cun)(cun)量(liang)優(you)化(hua)上，筆者(zhe)建(jian)議對(dui)(dui)現(xian)(xian)行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)法(fa)(fa)(fa)律、法(fa)(fa)(fa)規(gui)(gui)(gui)(gui)(gui)、規(gui)(gui)(gui)(gui)(gui)章和(he)行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)規(gui)(gui)(gui)(gui)(gui)范(fan)(fan)(fan)性(xing)文(wen)(wen)件(jian)進行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)全面(mian)清理(li)，對(dui)(dui)發現(xian)(xian)有不(bu)符合(he)上位(wei)法(fa)(fa)(fa)規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)(ding)、不(bu)適應經濟社會發展需(xu)要(yao)(yao)(yao)、通過行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)案(an)(an)變相(xiang)實(shi)施行(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)(zheng)許(xu)可(ke)(ke)等情形的(de)(de)規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)(ding)，要(yao)(yao)(yao)及時按照立(li)法(fa)(fa)(fa)權(quan)限和(he)程序予以(yi)修改(gai)或(huo)(huo)廢止，進一步減(jian)輕企(qi)業和(he)群(qun)眾的(de)(de)辦事(shi)(shi)負擔。
將行政備案的實施作為規范管理的重點
根(gen)據筆者(zhe)開展的(de)(de)(de)(de)(de)(de)調研情況(kuang)看(kan)，行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)的(de)(de)(de)(de)(de)(de)實施是(shi)(shi)(shi)規(gui)范管(guan)(guan)理(li)(li)的(de)(de)(de)(de)(de)(de)重點(dian)和(he)(he)難點(dian)。普(pu)遍反映(ying)的(de)(de)(de)(de)(de)(de)問題包括(kuo)：什么(me)是(shi)(shi)(shi)行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)、行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)與(yu)(yu)行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)許(xu)(xu)可(ke)(ke)的(de)(de)(de)(de)(de)(de)區(qu)別(bie)(bie)、如(ru)何認定變(bian)相(xiang)(xiang)實施行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)許(xu)(xu)可(ke)(ke)、行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)的(de)(de)(de)(de)(de)(de)形(xing)(xing)式(shi)(shi)審(shen)(shen)(shen)(shen)查(cha)(cha)(cha)(cha)是(shi)(shi)(shi)否流于(yu)形(xing)(xing)式(shi)(shi)或(huo)(huo)(huo)者(zhe)無(wu)(wu)法(fa)防(fang)(fang)范管(guan)(guan)理(li)(li)風險(xian)等。對(dui)此(ci)，目前(qian)存(cun)(cun)在(zai)(zai)兩(liang)種不(bu)(bu)同(tong)的(de)(de)(de)(de)(de)(de)觀(guan)點(dian)。一(yi)(yi)(yi)種觀(guan)點(dian)認為(wei)行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)只需形(xing)(xing)式(shi)(shi)審(shen)(shen)(shen)(shen)查(cha)(cha)(cha)(cha)，收(shou)件即備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)。另外(wai)一(yi)(yi)(yi)種觀(guan)點(dian)則認為(wei)形(xing)(xing)式(shi)(shi)審(shen)(shen)(shen)(shen)查(cha)(cha)(cha)(cha)可(ke)(ke)能流于(yu)形(xing)(xing)式(shi)(shi)，存(cun)(cun)在(zai)(zai)管(guan)(guan)理(li)(li)漏洞和(he)(he)風險(xian)。究(jiu)其(qi)根(gen)本，實施行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)的(de)(de)(de)(de)(de)(de)邊界和(he)(he)尺度才是(shi)(shi)(shi)相(xiang)(xiang)關部門的(de)(de)(de)(de)(de)(de)關切所在(zai)(zai)：審(shen)(shen)(shen)(shen)查(cha)(cha)(cha)(cha)強(qiang)(qiang)度過高(gao)，容易成為(wei)變(bian)相(xiang)(xiang)實施行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)許(xu)(xu)可(ke)(ke)；審(shen)(shen)(shen)(shen)查(cha)(cha)(cha)(cha)強(qiang)(qiang)度過低(di)，無(wu)(wu)法(fa)防(fang)(fang)范管(guan)(guan)理(li)(li)風險(xian)而有(you)(you)可(ke)(ke)能被追責。由此(ci)，形(xing)(xing)成“以(yi)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)代管(guan)(guan)”和(he)(he)“備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)而不(bu)(bu)管(guan)(guan)”兩(liang)極分(fen)化的(de)(de)(de)(de)(de)(de)情形(xing)(xing)。破解實施行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)的(de)(de)(de)(de)(de)(de)難題，可(ke)(ke)從以(yi)下兩(liang)個方面展開：一(yi)(yi)(yi)是(shi)(shi)(shi)清(qing)理(li)(li)事(shi)(shi)前(qian)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)的(de)(de)(de)(de)(de)(de)事(shi)(shi)項，使之回歸(gui)行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)許(xu)(xu)可(ke)(ke)。事(shi)(shi)前(qian)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)往往意(yi)味著未經備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)不(bu)(bu)得從事(shi)(shi)特定活動，容易與(yu)(yu)行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)許(xu)(xu)可(ke)(ke)相(xiang)(xiang)混(hun)淆，趨向變(bian)相(xiang)(xiang)實施行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)許(xu)(xu)可(ke)(ke)。二(er)是(shi)(shi)(shi)根(gen)據行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)的(de)(de)(de)(de)(de)(de)類型(xing)和(he)(he)特點(dian)，施加(jia)不(bu)(bu)同(tong)的(de)(de)(de)(de)(de)(de)審(shen)(shen)(shen)(shen)查(cha)(cha)(cha)(cha)強(qiang)(qiang)度。對(dui)于(yu)信息收(shou)集型(xing)行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)，如(ru)計(ji)劃(hua)、合同(tong)、考核結果的(de)(de)(de)(de)(de)(de)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)，備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)機關對(dui)報送材(cai)料進(jin)行(xing)(xing)(xing)(xing)(xing)完備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)性審(shen)(shen)(shen)(shen)查(cha)(cha)(cha)(cha)即可(ke)(ke)，屬于(yu)“信息歸(gui)檔”性質的(de)(de)(de)(de)(de)(de)管(guan)(guan)理(li)(li)活動。對(dui)于(yu)條件或(huo)(huo)(huo)標(biao)(biao)準審(shen)(shen)(shen)(shen)查(cha)(cha)(cha)(cha)型(xing)行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)，則審(shen)(shen)(shen)(shen)查(cha)(cha)(cha)(cha)強(qiang)(qiang)度要(yao)(yao)(yao)更高(gao)一(yi)(yi)(yi)些。以(yi)中醫診(zhen)所備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)為(wei)例，有(you)(you)關規(gui)定設置(zhi)了一(yi)(yi)(yi)定的(de)(de)(de)(de)(de)(de)條件和(he)(he)標(biao)(biao)準，包括(kuo)具有(you)(you)職業資格的(de)(de)(de)(de)(de)(de)人員、執業年限、符合相(xiang)(xiang)關標(biao)(biao)準以(yi)及環保(bao)、消防(fang)(fang)的(de)(de)(de)(de)(de)(de)相(xiang)(xiang)關規(gui)定等。對(dui)此(ci)，僅作(zuo)形(xing)(xing)式(shi)(shi)審(shen)(shen)(shen)(shen)查(cha)(cha)(cha)(cha)，無(wu)(wu)法(fa)防(fang)(fang)止(zhi)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)人虛報材(cai)料、申報材(cai)料和(he)(he)實地情況(kuang)不(bu)(bu)相(xiang)(xiang)符等問題的(de)(de)(de)(de)(de)(de)發(fa)生(sheng)。不(bu)(bu)難看(kan)出，上述各(ge)部門反映(ying)的(de)(de)(de)(de)(de)(de)問題，實質上是(shi)(shi)(shi)對(dui)條件或(huo)(huo)(huo)標(biao)(biao)準審(shen)(shen)(shen)(shen)查(cha)(cha)(cha)(cha)型(xing)行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)進(jin)行(xing)(xing)(xing)(xing)(xing)規(gui)范管(guan)(guan)理(li)(li)的(de)(de)(de)(de)(de)(de)問題。在(zai)(zai)審(shen)(shen)(shen)(shen)查(cha)(cha)(cha)(cha)強(qiang)(qiang)度的(de)(de)(de)(de)(de)(de)把握上，備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)機關需要(yao)(yao)(yao)注(zhu)意(yi)以(yi)下三個要(yao)(yao)(yao)點(dian)：一(yi)(yi)(yi)是(shi)(shi)(shi)應當(dang)允許(xu)(xu)申請人在(zai)(zai)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)前(qian)從事(shi)(shi)特定活動，以(yi)此(ci)與(yu)(yu)行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)許(xu)(xu)可(ke)(ke)相(xiang)(xiang)區(qu)別(bie)(bie)。二(er)是(shi)(shi)(shi)引入告知承諾制和(he)(he)信用管(guan)(guan)理(li)(li)，促使備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)人依法(fa)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)，提(ti)交真實的(de)(de)(de)(de)(de)(de)備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)材(cai)料。三是(shi)(shi)(shi)不(bu)(bu)能將備(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)(bei)案(an)(an)(an)(an)(an)(an)和(he)(he)監管(guan)(guan)割裂開來，而要(yao)(yao)(yao)將條件或(huo)(huo)(huo)標(biao)(biao)準的(de)(de)(de)(de)(de)(de)審(shen)(shen)(shen)(shen)核作(zuo)后置(zhi)處(chu)理(li)(li)，納入監管(guan)(guan)環節，通過整改等措施使之符合相(xiang)(xiang)應的(de)(de)(de)(de)(de)(de)條件或(huo)(huo)(huo)者(zhe)標(biao)(biao)準。
通過備管聯動提高政府監管效能
行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)案(an)(an)(an)(an)規范(fan)(fan)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)理改革(ge)應當(dang)堅持(chi)系(xi)(xi)統(tong)觀念，將行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)案(an)(an)(an)(an)和(he)后(hou)續監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)相(xiang)結合，實(shi)行(xing)(xing)(xing)(xing)(xing)備(bei)(bei)(bei)(bei)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)聯動的全(quan)過程管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)理。與(yu)行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)審批的事(shi)前監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)不同，行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)案(an)(an)(an)(an)更多具(ju)有事(shi)中和(he)事(shi)后(hou)監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)的特點。作為(wei)簡(jian)政(zheng)(zheng)(zheng)放權和(he)優化(hua)(hua)服務的管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)理方(fang)(fang)式(shi)，行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)案(an)(an)(an)(an)規范(fan)(fan)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)理應當(dang)著力解決(jue)好放權之(zhi)(zhi)后(hou)“誰來管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)”“管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)什么”“怎(zen)么管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)”的問題(ti)，實(shi)現(xian)“放之(zhi)(zhi)有序、管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)之(zhi)(zhi)有效”，為(wei)市場創造(zao)公平競爭的營商環境，以高效能監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)保(bao)障經濟社會高質(zhi)量發展。一(yi)是明(ming)晰職責(ze)(ze)邊(bian)界，構建備(bei)(bei)(bei)(bei)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)聯動機制(zhi)。針對問題(ti)多發領域(yu)和(he)關(guan)鍵環節制(zhi)定，將行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)案(an)(an)(an)(an)納入(ru)監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)清單(dan)，明(ming)確監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)主體、聯動機制(zhi)、監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)范(fan)(fan)圍、監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)標準、數據共享等內容，劃清權責(ze)(ze)界限，確保(bao)事(shi)有人管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)、責(ze)(ze)有人負(fu)。二是建立(li)(li)綜合監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)體系(xi)(xi)，加(jia)強(qiang)(qiang)(qiang)備(bei)(bei)(bei)(bei)案(an)(an)(an)(an)與(yu)監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)協同聯動。根據行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)案(an)(an)(an)(an)的特點，加(jia)快建立(li)(li)全(quan)方(fang)(fang)位、多層次、立(li)(li)體化(hua)(hua)監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)體系(xi)(xi)，探索推(tui)進聯合監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)、重點監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)、分(fen)(fen)級分(fen)(fen)類監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)、“雙隨機一(yi)公開”監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)，防止(zhi)備(bei)(bei)(bei)(bei)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)脫節和(he)監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)漏洞(dong)。三是創新監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)方(fang)(fang)式(shi)，提(ti)升精準監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)水(shui)平。綜合運(yun)用行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)、經濟、法律、技術(shu)等多種手(shou)段開展有效監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)，以信(xin)用監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)方(fang)(fang)式(shi)為(wei)基礎(chu)強(qiang)(qiang)(qiang)化(hua)(hua)事(shi)中事(shi)后(hou)監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)，以包容審慎方(fang)(fang)式(shi)加(jia)強(qiang)(qiang)(qiang)新經濟新業態監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)，實(shi)現(xian)行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)案(an)(an)(an)(an)監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)方(fang)(fang)式(shi)的法治化(hua)(hua)和(he)多元化(hua)(hua)。此外(wai)，將行(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)備(bei)(bei)(bei)(bei)案(an)(an)(an)(an)納入(ru)一(yi)體化(hua)(hua)監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)平臺，加(jia)強(qiang)(qiang)(qiang)備(bei)(bei)(bei)(bei)案(an)(an)(an)(an)信(xin)息(xi)歸集運(yun)用并強(qiang)(qiang)(qiang)化(hua)(hua)監(jian)(jian)(jian)(jian)(jian)(jian)測分(fen)(fen)析，不斷提(ti)高監(jian)(jian)(jian)(jian)(jian)(jian)管(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)(guan)的規范(fan)(fan)化(hua)(hua)、精準化(hua)(hua)、智能化(hua)(hua)水(shui)平。（武漢大(da)學法學院副教授(shou) 徐 晨）
日期：2022-11-21 12:40:32 | 關閉 |
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