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- 福彩3d图谜总汇牛彩网心水资料 - bingvnn.com

2018-08-21 14:03 来源:北京PK10计划网zc9667.com

   - 福彩3d图谜总汇牛彩网心水资料 - bingvnn.com

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  天天好彩 天天好彩 二四六天天好彩资料

   - 福彩3d图谜总汇牛彩网心水资料 - bingvnn.com

 
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- 福彩3d图谜总汇牛彩网心水资料 - bingvnn.com

2018-08-21 04:03 来源:新京报 参与互动 
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  制度反腐学者和纪检监察实务专家李永忠接受新京报专访

  监察体制改革避免“同体监督”

3月20日,第十三届全国人民代表大会第一次会议闭幕会经表决,通过了监察法。新华社记者 丁海涛 摄
3月20日,第十三届全国人民代表大会第一次会议闭幕会经表决,通过了监察法。新华社记者 丁海涛 摄

  昨日,十三届全国人大一次会议表决通过了《中华人民共和国监察法》,确立国家监察委员会是最高监察机关。这标志着我国朝着建立集中统一、权威高效的中国特色国家监察体制迈出了重要一步,将真正实现监察全覆盖、监督无死角。制度反腐学者和纪检监察实务专家李永忠表示,国家监察体制改革不仅整合了办案力量和监督资源,更重要的是使监察权成为独立于行政权之外的一种权力,对于过去监督权隶属于行政权这样一个不科学的权力结构进行了分解,使同体监督变成异体监督。

  历史上即有监察权行政权分立

  新京报:十二届全国人大副委员长李建国作监察法草案说明时表示,这次监察体制改革确立的监察制度,也体现了中华民族传统制度文化,是对中国历史上监察制度的一种借鉴。中国历史上的监察制度有哪些可以借鉴的地方?

  李永忠:古代中央集权的建立和延续主要得益于两个制度,一个是隋唐开启的科举制度,另一个就是古代的监察制度,监察机构与行政机构分立,御史大夫、监郡监县御史则负责监督。监察权与行政权相互制约的好坏,直接影响到历朝历代吏治的好坏。

  举个例子,汉武帝时期,用相当于县委书记的“小官”——刺史,年俸才600石,去监督相当于省委书记的“大官”——郡守,年俸达2000石,一个刺史要同时监督几个郡守,效果却很好,汉武帝曾说过“以小治大,内外相维”。

  回顾历史,可以得出一个结论,监察权与行政权是否分立,很重要。

  新京报:新中国成立后我国最早设立的监察机构有哪些特点?

  李永忠:1927年4月,中共五大设立中央监察委员会,这是中央纪律检查委员会的前身。1949年10月,中华人民共和国成立,中央人民政府委员会第三次会议决定成立中央人民政府政务院人民监察委员会。1954年9月,政务院改为国务院,政务院人民监察委员会改为国务院监察部。

  从名称中就可以看出来,这个时期的人民监察委员会,先后设置在政务院、国务院下面,也就是说,都是在行政序列中,并没有实现监察权与行政权的分立。

  合署办公让纪委工作受到拖累

  新京报:“文革”后,中纪委、监察部分别于1978年、1986年恢复重建,这时的监察体制呢?

  李永忠:十一届三中全会的功绩,我认为不仅在解放思想上,而且在党内权力的分解上。重建党的纪律检查委员会,就是党内权力科学分解的重要一环。当时,邓小平就提出,“制度方面的问题更重要”,下决心“改革党和国家的领导制度”。1986年12月,全国人大常委会决定设立监察部。1987年7月,监察部正式挂牌办公。当时,中央也试图通过党政分开来进行政改突破。

  新京报:1993年1月,中纪委、监察部合署办公,当时这个决定,是出于哪些方面考虑?

  李永忠:1993年1月,根据中共中央、国务院的决定,中央纪委、监察部开始合署办公,实行一套工作机构,履行党的纪律检查和行政监察两项职能的体制。这之后,全国各地的纪委和监察部门也陆续合署办公。合署办公的好处是力量集中、效率提升。

  可是也引发了一个问题。由于监察部门还是在政府序列里,合署后只好走上扩大外延,缩小内涵的做法。主要职责由监督专门机关,逐步向办案机关,以至于向纠风、执法、效能等部门工作转移。以至于效能监察成了中央纪委的一个重要室。而且,由于监察部门的地位不高,是政府的一个部门,合署后某种程度也拖累了纪委——党代会选举产生的党内监督专门机关的地位,使纪委的外延工作越来越多,监督的内涵职责越来越小,使监督的关口不但没能前移,而且不断后撤。

  许多腐败问题源于“权力配置不科学”

  新京报:你觉得腐败现象存在,是因为哪些问题?

  李永忠:这么多年来,几乎没有一个主要领导的腐败问题是由同级纪委监督检举揭发出来的,这个客观现实足以证明监察体制存在的问题。当年,山东省泰安市原市委书记胡建学就说过:官做到我这一级,就没有什么监督的了。江西的胡长清也讲过,组织的管理和监督对他而言,如同是“牛栏关猫,进出自由”。《永远在路上》专题片中有很多贪官的忏悔,其中,四川省委原副书记李春城的忏悔有两句很深刻,“人生都是现场直播,没有办法重来”,“认真地分析自己的罪错,我不得不面对这个现实,就是这些罪行和错误发生在我身上,它居然带有必然性!”

  分析这些贪官的心态,可以明白,他们的违法犯罪行为,虽然跟个人素质有关,但是更深层次的原因在于,不科学的权力结构和不合理的选人用人体制。如果反腐只停留于抓贪官,不从改革权力结构入手,那么还是会陷入割韭菜的局面。习近平总书记就深刻指出“腐败的本质是权力出轨、越轨”,“许多腐败问题源于‘权力配置不科学’”。

  新京报:那么这次监察体制改革,是不是解决了“权力配置不科学”的问题?

  李永忠:2016年11月,中办印发的《关于在北京市、山西省、浙江省开展国家监察体制改革试点方案》中,有一句话很重要,“国家监察体制改革是事关全局的重大政治改革”。为什么这样讲呢?因为国家监察体制改革不仅仅整合了办案力量和监督资源,更重要的是使监察权成为独立于行政权之外的一种权力,对于过去监督权隶属于行政权这样一个不科学的权力结构进行了分解,使同体监督变成异体监督,国家公职人员都能受到相对独立的国家监察机关的严格监督。

  我20多年前就分析过同体监督的弊端,并创造了异体监督这一词组。基本原理就是:再锋利的刀刃,也砍不了自己的刀把。由于监察机关一直在政府序列中,是政府的职能部门,按照当时的《行政监察法》,县级以上地方各级政府监察机关负责本行政区域内的监察工作,对本级政府和上一级监察机关负责并报告工作,监察业务以上级监察机关领导为主。而且,一些地区监察机关的人事、财务等都由地方政府控制,导致监察机关缺乏独立性,陷入了“同体监督”的困境。

  监察委体制突破“双重领导”框架

  新京报:此番十三届全国人大一次会议表决通过的监察法,对于解决“权力配置不科学”问题,有哪些突破?

  李永忠:监察法一个重大突破就在于,异体监督破题,法律明确规定“国家监察委员会领导地方各级监察委员会的工作,上级监察委员会领导下级监察委员会的工作”,上述对于领导体制的规定,突破了原来的“双重领导”的框架,也摆脱了“同体监督”痼疾。

  十八大以来的高压反腐,使反腐败斗争的压倒性态势已形成,这为监察体制改革深入推进奠定了社会基础;监察法颁布实施,又将为监察体制改革提供制度支撑。随着权力结构的改革和完善,将有利于发展党内民主,加强党内监督;将有利于保证看得见的管得着,顶得住的站得住,干得好的上得去。这就是进入新时代,我们通过深入开展反腐败工作,从而推动全面从严治党的关键所在。

  新京报记者 王姝

【编辑:李欢】
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