中国行政责任制度的缺失与重构（Deficiencies and Reconstruction of Chinese Administration Responsibility Institution）作者姓名顾爱华（Gu Ai-hua）中国行政责任制度的缺失与重构摘要频繁发生的矿难事件引发了我对中国行政责任制度问题的思考，本文以中国行政责任制度为研究内容，在反思中国行政责任制度的基础上，运用人民主权理论、委托代理理论、社会契约理论和民主控权理论等现代政治民主理论，分析中国行政责任制度的缺失及成因，从公共管理视域提出重构中国行政责任制度的见解。行政责任制度是现代民主政治的产物，是国家政治制度的重要组成部分，是宪政制度的基础，是人民对政府管理进行民主监督的制度安排，是政府必须为自己行使公共权力的行为负责的法治要求和德治要求，是中国政治文明建设的重要内容。中国行政责任制度的重构对化解政府信用危机，树立新型行政价值观，塑造廉洁高效政府形象，建立政府与人民之间的良性互动关系，提高中国政治制度品质具有重要作用。行政责任制度的实现情况是社会文明的一个标志。本文分五个部分阐述中国行政责任制度缺失与重构的基本观点。第一部分，绪论。对重构中国行政责任制度的背景、依据、目的、意义进行分析，并综述了目前学术界对行政责任制度研究的情况。国内外对政府的行政责任制度有一些研究，主要研究视角有政治学、法学和公共行政管理三个不同领域，各个学科都从本学科基础理论出发对行政责任制度建设提出基本看法。政治学的研究偏重于制度的宏观层次，法学的研究偏重于制度的中观层次，公共管理的研究偏重于制度的微观层次，各个学科的研究各有特色，促进了行政责任制度研究的深化。第二部分，阐述行政责任制度的基本理论。任何一种制度的重构都需要基本理论作支撑，行政责任制度的重构也不例外。本章追述了行政责任的由来，指出行政责任是人类社会的历史现象。分析了行政责任的内涵、外延、内容和分类。对行政责任制度进行界定，探讨了行政责任制度的本质、功能和内容。提出人民主权理论、社会契约理论、委托代理理论和民主控权理论是重构行政责任制度的理论基础。第三部分，分析中国行政责任制度的缺失与成因。中国行政责任制度的缺失主要体现在三个方面，即价值层面的行政责任观念缺失、制度设计层面的行政责任主体制度缺失和制度实现层面的行政责任制度运行机制缺失，并从主观方面和客观方面分析了行政责任制度缺失的主要原因。第四部分，提出中国行政责任制度重构的必要性与可能性，以及重构行政责任制度的重点内容。重构行政责任制度是完善中国政治制度、提升政府品质和提高政府执政能力的需要。而民治的要求、法治的要求、德治的要求是中国行政责任制度重构的动力因素。行政责任制度重构的重点内容是行政组织责任制度、行政法律责任制度、行政首长负责制度和行政岗位责任制度等。第五部分，提出重构行政责任制度的对策。即在行政价值原则上，树立现代行政理念，从领导至上转向法律至上，从权力治民转向人民至上，从权力无限转向权力有限，从行政失信转向诚信行政，建立责任政府和诚信政府。健全行政责任制度安排，建立公务员宣誓制度和引咎辞职制度。规范行政责任制度的实现机制，建立政府自我评价与追究、人民代表大会评价与追究和社会评价与追究的行政责任实现机制。 关键词：中国；行政责任；行政责任制度；缺失与重构Deficiencies and Reconstruction of Chinese Administration Responsibility Institution AbstractFrequent accident caused me to think about the issue of administrative responsibility institution, on the basis of the thought, by using the theory of the theory of modern political democracy, such as popular sovereignty, commissioned-acting theory, social contract theory and file theory etc. I try to analysis the deficiencies and causes of administrative responsibility institution, from angle of the public management domain to bring forward my opinion.Administrative responsibility institution is a product of modern democratic political system, is an important component of the national political system, is the foundation of civil government of the constitutional system, is the institution arrangement of democratic supervision management, is that the government must provide their own exercise of public authority responsible for the conduct of the rule of law and rule by virtue demands, is the key components of our political civilization building. It will play important role as follows, resolving the credit crisis, a new administrative values, shaping the image of a clean and efficient government, building positive interactions between government and citizens and improving the quality of our political system etc. The level of administrative responsibility institution achievement is a mark of civilized society. I will set forth the basic viewpoints from five parts.Part I, introduction. I will analysis the background, rationale, objectives, significance of rebuilding Chinese institution of administrative responsibility, and provide a review of current academic research on administrative responsibility institution. And some studies are in progress, major research perspective include political science, law and public administration three different areas, various disciplines starting from the basic theoretical disciplines of building basic administrative accountability views. Political science studies focus on the macro-level system, law research on the middle level, public administration research on the micro level in the system, each with various research disciplines to promote administrative responsibility institution study in depth.Part II, on the basic theory of administrative responsibility institution. Any restructuring will require basic theory as uphold, the administrative responsibility institution is no exception. In this chapter, we trace the origin of the administrative responsibility institutions, and point out the administrative responsibility is the phenomenon of the history of human society, and analysis of the content of administrative responsibility, outreach, content and classification. Define the administrative accountability and explore the essence of administrative accountability, functions and content. Raise sovereignty, commissioned-acting theory, social contract theory and file theory as theoretical basis.Part , I analysis of the deficiencies and causes administrative responsibility institution. The deficiencies primarily incarnated three areas, namely, the deficiencies of value level of administrative responsibilities, the subject deficiencies from the institution design level and the circulate mechanisms deficiencies from the administrative system, and analysis the main reasons of deficiencies from subjective and objective aspects.Part IV, I bring forward the need and the possibility of reconstruct the administrative responsibili