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劳动权性质再论/周鹏龙

作者:法律资料网 时间:2024-06-17 02:31:51  浏览:8729   来源:法律资料网
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劳动权性质论

周鹏龙


【摘要】

  作为人权之劳动权,在阶级斗争以及劳资纷争的历史长河里逐渐法定化,具体化,标志着人权的发展和人类文明的进步。在我国大力构建公正、和谐的社会背景下,劳动权保护和保障必然成为构建和谐社会的题中之意。对劳动权的研究不仅是全面保护劳动者的合法权益的逻辑起点,也是劳动法制建设的中心任务。因此对劳动权的界定不仅是和谐社会建设的客观要求,也是劳动权利保障的终极目的。

【关键词】与劳动权相关之劳动; 劳动者; 劳动力 ; 基本含义; 基本性质


【正文】

  纵观人类发展历史,依靠劳动谋生是人类的一项永恒的要求和必备的手段,但劳动并非自古是以权利而存在的。从“赤裸裸”绝对服从与低贱的劳动到给予法律肯定和人文关怀之“新装”的劳动权,从一种维持生存和发展的生存行为发展至人类之宪法性基本权利,证明了无产者对有产者的胜利,凸显了社会人的价值重估与人本位之理念。作为人类文明发展,人权进步之标志的劳动权,是劳资双方利益趋向调衡的历史斗争的产物,是人权事业不断推进的伟大硕果。

一、劳动权之动态表现——劳动

  对于“劳动”这个即熟悉而又似乎陌生的词语,其使用范围相当广泛。无论在经济学,社会学,还是在管理学等领域都具有不同的含义。本文立足于法学领域,尤其身处劳动法领域,探讨作为劳动法调整对象之劳动。马克思在分析劳动过程时曾对劳动含义做过精辟的揭示,即:“劳动是劳动力的使用(消费),是制造使用价值的有目地的活动”,“是以自身的活动来引起,调整和控制人和自然之间物质变化的过程。”[1]据此可认为,劳动是指劳动者基于生存和发展之需要,在物质生产和精神生产过程中,通过使用劳动力作用于劳动客体或者劳动对象进而产生的有助于生存和发展之需要的脑力和体力的总支出之总和。笔者认为劳动应具有两层含义。第一:劳动首先属于一种静态的资格状态,即劳动本身隐含劳动适宜条件或者资格:第二:劳动表现为以人的自然力为基础的动态创造过程。因此劳动属于静态资格和动态创造过程有机结合的脑力体力的总支出的客观外在实然状态。
  劳动类型复杂多样,在社会生活中具有多样性。其包括自我劳动、雇佣劳动和公益劳动。自我劳动即通过运用劳动力供养自己的劳动,也即自养。雇佣劳动即通过运用劳动力向他人提供劳动,这里包括有偿劳动和无偿劳动,我国劳动法中的劳动属于有偿劳动。公益劳动即为公共利益有偿和无偿的提供劳动的形式。
  劳动作为人类生存和发展必不可少的基本谋生手段或者方式,从奴隶社会开始至近代资本主义制度开始的历史时间段里,劳动曾被一味的视为低贱且处于绝对服从地位“下贱活动”。随着资产阶级与无产阶级力量的历史较量,使得劳动逐渐成为人权的重要基本内容,日益被国际普遍关注且纷纷宪法化,使得由原本低贱,绝对服从的劳动与劳动权逐渐有机结合,进而改变了“劳动的悲惨命运”。我国宪法第42条明确将劳动既规定为公民的一项权利,又规定为公民的一项义务,对于劳动属于一项权利还是一项义务或者既是权利又是义务,各学者观点不一。各学者观点概括起来大致有如下几种。[2]
第一:劳动既是公民的法律权利,又是公民的法律义务。
第二:劳动是公民的法律权利或者道德权利,劳动义务在特定之时为法律义务或者道德义务。
第三:劳动是公民的一种绝对的法律义务。
笔者认为,劳动既然能够和权利有机结合上升为人权之劳动权,那么其性质无可非议的依然属于一种权利。作为权利主体的公民既可以作一定行为,也可以不作出一定的行为,甚至可以放弃权利本身。一个完整的权利应当全面具备这三种选择的可能性,只有这样的权利才属于充分和完全的。然而根据我国宪法对劳动地位或者性质的规定显然不符合权利本身的要求。我们经常强调权利义务的统一,但是统一必须以同一法律关系为前提,因此在同一法律关系中既赋予劳动权利又课以劳动义务不仅不能自圆其说而且造成逻辑上的错误。因此劳动应属于一项权利,但若要强调义务,只能说是基于国家特定历史环境的限制,或者人类发展必然客观要求应有的“不言而喻”的生存和发展义务,更倾向于道德义务或者基于生存和发展不得不为之的义务,而非法律义务。由于劳动是与劳动者人身紧密结合的,因此具有强烈的人身性,作为法律义务在当劳动者不作为时或者不履行时,不能强制要求其履行义务,这不仅有违于人权保护理念而且有强迫劳动之嫌。笔者明知作为最高宪法对劳动的规定,但仍背其道而行,有否定宪法不为法之嫌,因为劳动属于一项义务,是由宪法规定的法定义务,否认法定义务意味着挑战宪法不为法。笔者之所以认为劳动属于一项权利除了权利本身的要求之外,更重要的是站在应然的角度来阐述的,这是人类共产主义社会的应然的内容。

二、劳动权之载体——劳动者

  当谈及到劳动时不得不涉及到劳动者的问题,即与劳动不可分割的人身载体——劳动者的问题。作为劳动立法核心保障的劳动者,对其解释由于身处领域不同而具有差异性。(1)经济学意义上的劳动者因其基于人力资本研究雇佣关系为基础,因此在经济学领域的劳动者通常被称为雇员。其特征表现在:劳动者是劳动的所有者,劳动力被雇佣以及劳动报酬是劳动者的主要收入。(2)在社会学领域劳动者被称为人类社会的创造者和社会主义建设者,泛指人类认识和改造世界活动过程中,具有劳动能力,遵守劳动规则,占据劳动岗位,参与劳动关系的人。(3)在劳动法领域中劳动者是指具有劳动权利和义务的公民。
  劳动者作为一个法学概念有广义和狭义之分。其广义指具有劳动权利能力和劳动行为能力(但并不一定参与劳动关系)的公民。其狭义仅指职工。职工亦有广义和狭义之分。其广义指具有劳动权利能力和劳动行为能力并且已经依法参与劳动关系(但并不一定建立劳动法律关系)的公民,也即一般法律意义上上的职工。其狭义仅指具有劳动权利能力和劳动行为能力并且已依法参与劳动法律关系的公民,也即劳动法意义上的职工。从劳动者的广狭义界定,我们可以清楚的认识到劳动法意义上的劳动者与一般法律意义上的劳动者,因劳动者保护的法律基础不同因而出现不同性质的保护状态,因此这就把一般法律意义上的与劳动法意义上的劳动者,因参与同质工作而排除在特殊劳动法保护的“灰色地带”或者边缘。笔者认为,这是有背社会公平原则和社会歧视之嫌。我国正处于发展阶段,由于复杂的社会社会环境以及劳动者自身的劣势在社会变革发展的过程中出现“断层现象”比比皆是,事实上除了劳动法保护的劳动者之外还有一大部分劳动者仍然处于劳动法的边缘。因此笔者认为劳动法应该扩大保护范围和对象。因劳动是人类生存的基本手段,给予不同身份劳动者平等保护,不仅是人权发展的要求,而且是法律价值的应有之义。劳动法所倡导和发扬的保护社会弱势劳动者的法律精神和人权保护理念应该无条件的给予一般法律意义上的劳动者,,彰显社会公平,实现社会实质平等进而保障社会和谐有序发展。

三、劳动权之基点——劳动力

  联结劳动和劳动者的中介重要因素则为劳动力,马克思曾指出:“我们把劳动力或者劳动能力,理解为人的身体活动,即活的人体中存在的每当人们生产某种使用价值时就使用体力和脑力的总和。”[3]据此,劳动力可界定为人所具有的并在生产使用价值时运用的脑力和体力的总和。劳动力天然的以劳动者人身作为载体,天生与人身不可分离,其产生和形成具有阶段性或者时间性,储存具有短期性,再生产具有不可间断性,投入使用具有不可分割性,支出具有可重复性以及不可回收性等特点。
  劳动力由于与人身具有不可分割性,因此劳动力具有潜在形态(隐形或者内在形态)和外在形态或显性形态之分。前者即隐含于人体内部,尚处于静态形式和无形状态的劳动力,也即内在尚待使用的劳动力。其创造使用价值的可能性尚未转化为现实性;后者则指表现于人体外部处于动态形式和行为联系的外在状态的劳动力,被使用的劳动力才可以外在形态存在并且已具有创造使用价值的现实性。潜在形态的劳动力是外在形态劳动力的基础,外在形态的劳动力是潜在劳动力的外化或者客观转化。因劳动力可作为买卖或者交易的客体,因此劳动力可作为无形商品或特殊商品,其使用价值体现在使用而创造比自身价值更大的价值。日益激烈竞争的人才市场归根结底就是劳动力的买卖或者交易市场,因劳动力具有可交易性的商品属性因可自由流通,那么用人单位雇用劳动者是雇佣劳动者本人还是雇用劳动力,究其实质用人单位使用的是与劳动者不可分割的劳动力,因此即可称为雇用劳动者也可称为雇用劳动力。

  四、劳动权的历史渊源

  劳动,是人类社会与生俱有的。但劳动在很长时间内并不是以权利而存在。劳动权的产生经过了一个长期的发展过程,劳动与权利的结合则是近代资本主义发展到一定阶段的产物。“一切法权现象只有理解了与之相适应的社会生活条件,并且从这些社会条件中被引申出来的时候,才能把握其底蕴。”[4]
  在原始社会,权利义务处于一种没有区别的状态,氏族部落自然地形成了原始共产制度。作为氏族成员的个人,在危险的生存环境中,无法脱离群体生活,离开群体就意味着死亡。他们认为,每个人应该而且必须参加集体的劳动、参加集体的分配和消费。同样的,只要不违反习惯和禁忌,氏族群体也不会抛弃任一成员,减少成员就意味着集体力量的削弱和生存能力的降低,这样就形成个人与团体之间的双重依赖。氏族成员的劳动是一种内在意识的行为,隐含着朴素的习惯、道德、观念形态的劳动权利义务萌芽与意蕴。“由于缺乏适宜的生长环境,缺乏促进权利发育的阳光、水与土壤,这个萌芽不会发展为现代意义的劳动权。[5]
  奴隶社会中,奴隶完全没有法律人格,只是会说话的工具,是权利的客体,不能享有任何权利。在这种社会背景下,劳动是奴隶无条件履行的绝对义务,劳动的意义不是为了自身的生存,而是为奴隶主生产尽可能多的劳动成果,从而社会不具备生成劳动权的任何条件,甚或连道德意义和习惯意义上的劳动权利都没有。
  封建社会中,虽然少数自耕农拥有自己的土地,但大多数农民没有或只有少部分的土地,为了生存只能在封建领主的庄园里劳动或租种地主的土地,他们与地主之间形成人身依附关系,只有有限制的法律地位和法律人格。并且由于封建社会实行封闭的自给自足的自然经济,社会分工和商品经济极不发达,劳动权没有产生的社会根据和理由,整个社会既没有可能,也没有必要形成劳动力的大规模买卖和转让。虽然这时也出现劳动力出让的现象,但这种劳动力出让并不是现代劳动法意义上的劳动关系,而是一种典型的人身依附关系。这意味着,这一时期不存在“劳动权”的问题。
  资本主义发展初期,新兴资产阶级和资产阶级化的封建贵族为了巩固和发展资本主义生产关系,公开使用国家暴力颁布了一系列血腥恐怖的“劳工法规”,赋予资产阶级以特权,用鞭打、烙印、酷刑等手段强迫公民劳动,繁重的劳动折磨着每一个劳动者,劳工权利毫无保障。
  19世纪初,随着资本主义社会进入自由竞争阶段。由于古典自由主义思想居于支配地
位,它要求国家不干预经济生活,只是充当“守夜人”的角色。这种自由放任的政策在使资本主义经济得到快速发展的同时,也使工人阶级和资本家之间的贫富差距扩大,阶级矛盾尖锐,以致后来爆发三大工人运动,直接威胁着资产阶级的稳定统治。
  随着资产阶级人文主义思想、社会主义思想的兴起和工人运动的风起云涌,无产阶级首先提出争取劳动权的要求,1831年里昂工人起义时提出了“生活、工作或死亡”的口号,这被认为是无产阶级第一次提出了劳动权利的口号。由于资本主义的生产方式已经取得了统治地位,也为资产阶级采用法律手段缓和阶级矛盾提供了物质基础。1848年二月革命时,法国资产阶级临时政府发布了《为全体市民提供劳动机会的宣言》,承认劳动者享有劳动权,第一次以法令形式确认劳动权。[6]这是劳动权的萌芽阶段。
  20世纪初,一些发达资本主义国家进入了垄断资本主义阶段,雇佣劳动与垄断资本之间的矛盾日趋尖锐。资本主义国家不得不放弃传统的“守夜人”理论,运用政治、法律等手段来调节劳资关系,劳动权入宪是这一时期劳动权发展的重要特征。最早以宪法规定劳动权的资产阶级宪法是1919年德国《魏玛宪法》。从此,劳动权作为一种宪法权利为越来越多的资本主义国家接纳。
  这个时期,劳动权进入宪法的另一个动力是苏俄社会主义革命胜利。1917年,新生的苏维埃政权就发布了《被剥削劳动人民权利宣言》,1918年的苏俄宪法以《被剥削劳动人民权利宣言》为首篇,首次集中规定了劳动权。在这种背景下,德国为了避免国内的社会主义革命,制定了《魏玛宪法》。第二次世界大战结束后,越来越多的国家陆续在宪法和法律中规定公民有劳动的权利,确认公民的劳动权。联合国大会通过的《世界人权宣言》、《经济、社会和文化权利国际公约》等一系列公约,更是为劳动权创设了国际法上的保护。
  劳动权的产生除了客观政治、经济原因的推动之外,而且还与不同历史背景下为劳动者争取劳动权,提供人文思想和精神动力的伟大思想有着密切的联系。
  劳动权思想的萌芽阶段源于空想社会主义学者的人权理论中,最早提出有劳动权思想的是16世纪初期美国政治家和思想家托马斯.莫尔,非凡的思想家见证了社会贫富极端两极化的不公平的社会现实,他提出人人都要参加劳动,劳动是每个人的权利,又是每个人必须履行的义务,同时也提出劳动者享有休息的权利,而且强调男女两性劳动不仅注重形式平等而且关注实质平等。
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JOINT DECLARATION OF THE GOVERNMENT OF THE UNITED KINGDOM OF GREAT BRITAIN AND NORTHERN IRELAND AND THE GOVERNMENT OF THE PEOPLE'S REPUBLIC OF CHINA ON THE QUESTION OF HONG KONG ——附加英文版

the Government of the People's Republic of China,Government of the United Kingdom of Great Britain and Northern


JOINT DECLARATION OF THE GOVERNMENT OF THE UNITED KINGDOM OF GREAT BRITAIN AND NORTHERN IRELAND AND THE GOVERNMENT OF THE PEOPLE'S REPUBLIC OF CHINA ON THE QUESTION OF HONG KONG


WHOLE DOCUMENT
  
  Government of the United Kingdom of Great Britain and Northern
Ireland
  the Government of the People's Republic of China have reviewed 
with
  sfaction the friendly relations existing between the two 
Governments
  peoples in recent years and agreed that a proper negotiated
settlement
  he question of Hong Kong, which is left over from the past, is 
con-
  ve to the maintenance of the prosperity and stability of Hong Kong
and
  he further strengthening and development of the relations between 
the
  countries on a new basis. To this end, they have, after talks 
between
  delegations of the two Governments, agreed to declare as follows:
  
  he Government of the People's Republic of China declares 
that to
  ver the Hong Kong area (including Hong Kong Island, Kowloon and 
the
  Territories, hereinafter referred to as Hong Kong) is the 
common
  ration of the entire Chinese people, and that it has decided to
resume
  exercise of sovereignty over Hong Kong with effect from 1 July
1997.
  
  he Government of the United Kingdom declares that it will restore
Hong
  to the People's Republic of China with effect from 1 July 1997.
  
  he Government of the People's Republic of China declares 
that the
  c policies of the People's Republic of China regarding Hong Kong 
are
  ollows:
  Upholding national unity and territorial integrity and taking 
account
  he history of Hong Kong and its realities, the People's 
Republic of
  a has decided to establish, in accordance with the 
provisions of
  cle 31 of the Constitution of the People's Republic of China, a 
Hong
  Special Administrative Region upon resuming the 
exercise  of
  reignty over Hong Kong.
  The Hong Kong Special Administrative Region will be directly
under the
  ority of the Central People's Government of the People's 
Republic of
  a. The Hong Kong Special Administrative Region will enjoy 
a high
  ee of autonomy, except in foreign and defence affairs which are 
the
  onsibilities of the Central People's Government.
  The Hong Kong Special Administrative Region will be 
vested with
  utive, legislative and independent judicial power, including 
that of
  l adjudication. The laws currently in force in Hong Kong will 
remain
  cally unchanged.
  The Government of the Hong Kong Special Administrative Region
will be
  osed of local inhabitants. The chief executive will be 
appointed by
  Central People's Government on the basis of the results of 
elections
  onsultations to be held locally. Principal officials will be
nominated
  he chief executive of the Hong Kong Special Administrative Region 
for
  intment by the Central People's Government. Chinese and 
foreign
  onals previously working in the public and police services 
in the
  rnment departments of Hong Kong may remain in employment. British 
and
  r foreign nationals may also be employed to serve as advisers or 
hold
  ain public posts in government departments of the Hong Kong 
Special
  nistrative Region.
  The current social and economic systems in Hong Kong will 
remain
  anged, and so will the life-style. Rights and freedoms, 
including
  e of the person, of speech, of the press, of assembly, of
association,
  ravel, of movement, of correspondence, of strike, of 
choice of
  pation, of academic research and of religious belief will be 
ensured
  aw in the Hong Kong Special Administrative Region. Private 
property,
  rship of enterprises, legitimate right of inheritance and 
foreign
  stment will be protected by law.
  The Hong Kong Special Administrative Region will retain the
status of
  ee port and a separate customs territory.
  The Hong Kong Special Administrative Region will retain the
status of
  nternational financial centre, and its markets for foreign 
exchange,
  , securities and futures will continue. There will be free 
flow of
  tal. The Hong Kong dollar will continue to circulate and remain
freely
  ertible.
  The Hong Kong Special Administrative Region will have 
independent
  nces. The Central People's Government will not levy taxes on the 
Hong
  Special Administrative Region.
  
  The Hong Kong Special Administrative Region may establish 
mutually
  ficial economic relations with the United Kingdom and other
countries,
  e economic interests in Hong Kong will be given due regard.
  Using the name of "Hong Kong, China", the Hong Kong 
Special
  nistrative Region may on its own maintain and develop 
economic and
  ural relations and conclude relevant agreements with states, 
regions
  relevant international organizations. The Government of the
Hong Kong
  ial Administrative Region may on its own issue travel 
documents for
  y into and exit from Hong Kong.
  The maintenance of public order in the  Hong  Kong 
Special
  nistrative Region will be the responsibility of the Government
of the
  Kong Special Administrative Region.
  The above-stated basic policies of the People's Republic of 
China
  rding Hong Kong and the elaboration of them in Annex I to this 
Joint
  aration will be stipulated, in a Basic Law of the Hong Kong 
Special
  nistrative Region of the People's Republic of China, by the 
National
  le's Congress of the People's Republic of China, and they will 
remain
  anged for 50 years.
  
  he Government of the United Kingdom and the Government of the
People's
  blic of China declare that, during the transitional period
between the
  of the entry into force of this Joint Declaration and 30 June 
1997,
  Government of the United Kingdom will be responsible 
for the
  nistration of Hong Kong with the object of maintaining and 
preserving
  economic prosperity and social stability; and that the 
Government of
  People's Republic of China will give its cooperation 
in this
  ection.
  
  he Government of the United Kingdom and the Government of the
People's
  blic of China declare that, in order to ensure a smooth 
transfer of
  rnment in 1997, and with a view to the effective 
implementation of
  Joint Declaration, a Sino-British Joint Liaison Group will be set 
up
  this Joint Declaration enters into force; and that it 
will be
  blished and will function in accordance with the provisions of 
Annex
  o this Joint Declaration.
  
  he Government of the United Kingdom and the Government of the
People's
  blic of China declare that land leases in Hong Kong and other 
related
  ers will be dealt with in accordance with the provisions of Annex 
III
  his Joint Declaration.
  
  he Government of the United Kingdom and the Government of the
People's
  blic of China agree to implement the preceding declarations 
and the
  xes to this Joint Declaration.
  
  his Joint Declaration is subject to ratification and shall enter 
into
  e on the date of the exchange of instruments of ratification, 
which
  l take place in Beijing before 30 June 1985. This Joint 
Declaration
  its Annexes shall be equally binding. Done in duplicate at
Beijing on
  ecember 1984 in the English and Chinese languages, both texts 
being
  lly authentic.
  the                  For the
  rnment of the United Kingdom     Government of the
  reat Britain and Northern Ireland   People's Republic of China
  rate Thatcher             Zhao Ziyang
 ANNEX I: ELABORATION BY THE GOVERNMENT OF THE PEOPLE'S REPUBLIC OF 
CHINA OF ITS BASIC POLICIES REGARDING HONG KONG
  
  Government of the People's Republic of China elaborates the 
basic
  cies of the People's Republic of China regarding Hong Kong as set 
out
  aragraph 3 of the Joint Declaration of the Government of the 
United
  dom of Great Britain and Northern Ireland and the Government of 
the
  le's Republic of China on the Question of Hong Kong as follows:
  
  
  Constitution of the People's Republic of China stipulates in 
Article
  hat "the state may establish special administrative 
regions when
  ssary. The systems to be instituted in special administrative 
regions
  l be prescribed by laws enacted by the National People's 
Congress in
  light of the specific conditions." In accordance with this 
Article,
  People's Republic of China shall, upon the resumption of the 
exercise
  overeignty over Hong Kong on 1 July 1997, establish the Hong 
Kong
  ial Administrative Region of the People's Republic of China.  
The
  onal People's Congress of the People's Republic of China shall 
enact
  promulgate a Basic Law of the Hong Kong Special Administrative 
Region
  he People's Republic of China (hereinafter referred to as the 
Basic
  in accordance with the Constitution of the People's 
Republic of
  a, stipulating that after the establishment of the Hong Kong 
Special
  nistrative Region the socialist system and socialist policies 
shall
  be practised in the Hong Kong Special Administrative Region and 
that
  Kong's previous capitalist system and life-style shall 
remain
  anged for 50 years.
  Hong Kong Special Administrative Region shall be directly 
under the
  ority of the Central People's Government of the People's 
Republic of
  a and shall enjoy a high degree of autonomy. Except for foreign 
and
  nce affairs which are the responsibilities of the Central 
People's
  rnment, the Hong Kong Special Administrative Region shall be 
vested
  executive, legislative and independent judicial power, including
that
  inal adjudication. The Central People's Government shall
authorise the
  Kong Special Administrative Region to conduct on its own 
those
  rnal affairs specified in Section XI of this Annex.
  government and legislature of the Hong Kong Special 
Administrative
  on shall be composed of local inhabitants. The chief executive
of the
  Kong Special Administrative Region shall be selected by 
election or
  ugh consultations held locally and be appointed by the 
Central
  le's Government. Principal officials (equivalent to Secretaries)
shall
  nominated by the chief executive of  the  Hong  Kong 
Special
  nistrative Region and appointed by the Central People's 
Government.
  legislature of the Hong Kong Special Administrative Region 
shall be
  tituted by elections. The executive authorities shall abide by
the law
  shall be accountable to the legislature.
  ddition to Chinese, English may also be used in organs of 
government
  in the courts in the Hong Kong Special Administrative Region.
  t from displaying the national flag and national emblem 
of the
  le's Republic of China, the Hong Kong Special Administrative 
Region
  use a regional flag and emblem of its own.
  
  
  r the establishment of the Hong Kong Special Administrative 
Region,
  laws previously in force in Hong Kong (i. e. the common law, rules 
of
  ty, ordinances, subordinate legislation and customary law) 
shall be
  tained, save for any that contravene the Basic Law and subject
to any
  dment by the Hong Kong Special Administrative Region legislature. 
The
  slative power of the Hong Kong Special Administrative Region
shall be
  ed in the Legislature of the Hong Kong Special Administrative 
Region.
  legislature may on its own authority enact laws in accordance with
the
  isions of the Basic Law and legal procedures, and report them to 
the
  ding Committee of the National People's Congress for the record. 
Laws
  ted by the legislature which are in accordance with the Basic Law 
and
  l procedures shall be regarded as valid.
  laws of the Hong Kong Special Administrative Region shall be the
Basic
  and the laws previously in force in Hong Kong and laws enacted
by the
  Kong Special Administrative Region legislature as above.
  
  
  r the establishment of the Hong Kong Special Administrative 
Region,
  judicial system previously practised in Hong Kong shall be 
maintained
  pt for those changes consequent upon the vesting in the courts
of the
  Kong Special Administrative Region of  the  power  of 
final
  dication.
  cial power in the Hong Kong Special Administrative Region 
shall be
  ed in the courts of the Hong Kong Special Administrative Region. 
The
  ts shall exercise judicial power independently and free 
from any
  rference. Members of the judiciary shall be immune from legal 
action
  espect of their judicial functions. The courts shall decide 
cases in
  rdance with the laws of the Hong Kong Special Administrative 
Region
  may refer to precedents in other common law jurisdictions. 
Judges of
  Hong Kong Special Administrative Region courts shall be 
appointed by
  chief executive of the Hong Kong Special Administrative Region 
acting
  accordance with the recommendation of an independent 
commission
  osed of local judges, persons from the legal profession and 
other
  ent persons. Judges shall be chosen by reference to their 
judicial
  ities and may be recruited from other common law 
jurisdictions. A
  e may only be removed for inability to discharge the functions
of his
  ce, or for misbehaviour, by the chief executive of the 
Hong Kong
  ial Administrative Region acting in accordance with the
recommendation
  tribunal appointed by the chief judge of the court of final 
appeal,
  isting of not fewer than three local judges. 
Additionally, the
  intment or removal of principal judges (i. e. those of the 
highest
  ) shall be made by the chief executive with the endorsement of 
the
  Kong Special Administrative Region legislature and reported 
to the
  ding Committee of the National People's Congress for the record. 
The
  em of appointment and removal of judicial officers other than 
judges
  l be maintained.
  power of final judgment of the Hong Kong Special Administrative
Region
  l be vested in the court of final appeal in the Hong Kong 
Special
  nistrative Region, which may as required invite judges from 
other
  on law jurisdictions to sit on the court of final appeal.
  osecuting authority of the Hong Kong Special Administrative 
Region
  l control criminal prosecutions free from any interference.
  he basis of the system previously operating in Hong Kong, the 
Hong
  Special Administrative Region Government shall on its 
own make
  ision for local lawyers and lawyers from outside the Hong Kong
Special
  nistrative Region to work and practise in the Hong Kong 
Special
  nistrative Region.
  Central People's Government shall assist or authorise the Hong 
Kong
  ial Administrative Region Government to make appropriate 
arrangements
  reciprocal juridical assistance with foreign states.
  
  
  r the establishment of the Hong Kong Special Administrative 
Region,
  ic servants previously serving in Hong Kong in all 
government
  rtment, including the police department, and members of the 
judiciary
  all remain in employment and continue their service 
with pay,
  wances, benefits and conditions of service no less 
favourable than
  re. The Hong Kong Special Administrative Region government 
shall pay
  uch persons who retire or complete their contracts, as well 
as to
  e who have retired before 1 July 1997, or to their dependants, 
all
  ions, gratuities, allowances and benefits due to them on terms
no less
  urable than before, and irrespective of their nationality or
place of
  dence.
  Hong Kong Special Administrative Region Government may employ 
British
  other foreign nationals previously serving in the public 
service in
  Kong, and may recruit British and other foreign nationals 
holding
  anent identity cards of the Hong Kong Special Administrative
Region to
  e as public servants at all levels, except as heads 
of major
  rnment departments (corresponding to branches or 
departments at
  etary level) including the police department, and as deputy 
heads of
  of those departments. The Hong Kong Special Administrative 
Region
  rnment may also employ British and other foreign nationals as
advisers
  overnment departments and, when there is a need, may recruit
qualified
  idates from outside the Hong Kong Special Administrative 
Region to
  essional and technical posts in government departments, 
The above
  l be employed only in their individual capacities and, like 
other
  ic servants, shall be responsible to the  Hong  Kong 
Special
  nistrative Region Government.
  appointment and promotion of public servants shall be on the basis 
of
  ifications, experience and ability. Hong Kong's previous 
system of
  uitment, employment, assessment, discipline, training and 
management
  the public service (including special bodies for appointment, pay 
and
  itions of service) shall, save for any provisions providing
privileged
  tment for foreign nationals, be maintained.
  
  
  Hong Kong Special Administrative Region shall deal on its own 
with
  ncial matters, including disposing of its financial 
resources and
  ing up its budgets and its final accounts. The Hong Kong 
Special
  nistrative Region shall report its budgets and final accounts to 
the
  ral People's Government for the record.  The Central 
People's
  rnment shall not levy taxes on the Hong Kong Special 
Administrative
  on. The Hong Kong Special Administrative Region shall 
use its
  ncial revenues exclusively for its own purposes and they shall
not be

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珠海市城市管理相对集中行政处罚权实施办法

广东省珠海市人民政府


珠海市城市管理相对集中行政处罚权实施办法

珠海市人民政府令第31号
  

《珠海市城市管理相对集中行政处罚权实施办法》业经2001年第34次市政府常务会议通过,现予发布,自2002年1月1日起施行。


市长 方璇
二OO一年十二月十六日

                      

 珠海市城市管理相对集中行政处罚权实施办法

  第一章 总 则
  第一条 为了加强域市管理,维护城市秩序,提高行政执法水平和效能,优化执法环境,保护公民、法人和其它组织的合法权益,根据《中华人民共和国行政处罚法》、国务院法制办公室《关于在广东省珠海市开展相对集中行政处罚权试点工作的复函》及珠海市市级党政机构改革方案实施意见,制定本办法。
  第二条 城市管理行政执法局(下称执法局)是经国务院授权国务院法制办公室批复同意并经省政府批准设立的集中行使城市管理行政处罚权的行政机关。
  市人民政府依法设立执法局,负责按本办法的规定集中行使城市管理行政处罚权,香洲区设立区城市管理执法局,在街道办(镇)设中队,按隶属关系分别以市、区执法局的名义行使行政处罚权。斗门、金湾区具备条件后再设立区执法局及下属执法队。
  第三条 城市管理行政执法实行统一指挥、分级管理。区执法局主要负责人的任免、调动由市执法局与区政府共同组织考察和考核,再由区政府按程序任免、调动。
  市执法局统一行使全市城市管理行政执法工作的业务领导权。对全市城市管理行政执法工作实施组织、协调、督查和考核,统一组织城市管理行政执法人员的录用、培训、考核和奖惩,统一定制执法人员制服和申请办理执法人员《行政执法证》。
  第四条 市执法局负责组织全市性、跨区性、专项的城市管理行政执法工作,必要时可指挥和调动各区执法人员集中查处违法行为,可直接查处重大案件或认为应直接查处的案件。
  区执法局按管辖区域行使行政处罚权,认为自己难以查处的案件,可提请市执法局查处。
  第五条 执法局应当建立执法人员轮岗交流制度,实行行政执法责任制和评议考核制,切实提高行政执法水平。
  第六条 单位和个人应当积极支持执法局执行公务,并有权制止和检举揭发违反城市管理的行为。
  第二章 管理职责
  第七条 执法局的具体职责是:
  (一)行使市容环境卫生管理方面法律、法规、规章规定的行政处罚权,强制拆除不符合城市容貌标准、环境卫生标准的建筑物或者设施;
  (二)行使城市规划管理方面法律、法规、规章规定的行政处罚权;
  (三)行使城市绿化管理方面法律、法规、规章规定的行政处罚权;
  (四)行使市政管理方面法律、法规、规章规定的行政处罚权:
  (五)行使环境保护管理方面法律、法规、规章规定的对社会生活噪声污染和建筑施工噪声污染的行政处罚权,对向大气排放有毒有害气体和烟尘的行政处罚权,对向城市建成区内排放生活污水的行政处罚权;
  (六)行使工商行政管理方面法律、法规、规章规定的对无照商贩的行政处罚权;
  (七)行使公安交通管理方面法律、法规、规章规定的对侵占道路行为的行政处罚权;
  (八)行使旅游管理方面法律、法规、规章规定的行政处罚权;
  (九)行使文化管理方面法律、法规、规章规定的行政处罚权;
  (十)行使燃气、供气、排污管理方面法律、法规、规章规定的行政处罚权;
  (十一)行使生猪屠宰管理方面法律、法规、规章规定的行政处罚权;
  (十二)行使烟花爆竹管理方面法律、法规、规章规定的行政处罚权;
  (十三)行使法律、法规、规章和省、市人民政府规定的其它职责。
  前款规定的职责,在执法局正式运作以后,可以逐步到位,尚未由执法局集中行使之前,仍由原承担这些职能的行政执法机关行使。
  第八条 城市管理行政执法人员执行公务时,可以行使下列权利:
  (一)进入被检查单位或现场进行调查或者依照法律、法规的现定进行检查;
  (二)查阅、调阅或复制被检查单位、个人与检查事项有关的资料;
  (三)依法采用录音,录(摄)像等取证手段,取得有关证据材料;
  (四)依法对违法行为所涉及的工具、物品、证件以及建筑物、构筑物予以查封、扣押或对证据进行先行登记保存;
  (五)依法实施行政处罚;
  (六)法律、法规、规章规定的其它职权。
  第九条 市、区相关行政管理部门应当积极支持、配合执法局依法集中行使行政处罚权。
  行政处罚权相对集中行使后,原有关行政管理部门不得再行使已由执法局集中行使的行政处罚权。仍然行使的,其作出的行政处罚决定一律无效。
  第三章 处罚程序
  第十条 城市管理行政执法人员执行公务时,应统一着装,配戴执法标志、出示行政执法证件,严格按照《中华人民共和国行政处罚法》规定的程序进行执法。
  第十一条 对公民处以50元以下,对法人或其它组织处以1000元以下罚款或者警告行政处罚的,执法人员可以当场填写预定格式、编有号码、加盖执法局公章的处罚决定书,作出行政处罚。其中,依法给予20元以下罚款或不当场收缴罚款事后难以执行的,执法人员可以当场收缴罚款。
  除前款规定的可以当场作出的行政处罚外,执法局实施的其它行政处罚。必须全面、客观、公正地调查、取证。调查、取证终结,由执法局负责人对调查结果进行审查,对确应受行政处罚的,作出处罚决定,下达处罚决定书。对情节复杂或重大违法行为给予较重的行政处罚,执法局负责人应当组织集体讨论决定。
  第十二条 执法局在作出责令停产停业、吊销许可证或者执照,对公民的违法行为处以1000元以上罚款、对法人或其它组织的违法行为处以50000元以上罚款等行政处罚决定,应当告知当事人有要求举行听证的权利。当事人要求听证的,应当组织听证。
  第十三条 同一违法行为同时违反若干处罚规定的,执法局应按其中最重一项进行处罚,不得重复处罚。
  第十四条 执法局查处的违法案件,需要作技术鉴定的,应委托相关行政管理部门或专业鉴定机关鉴定。
  第十五条 执法局实施行政处罚时,应遵守下列规定:
  (一)制作统一规范格式的或者开具统一印制的行政处罚决定书;
  (二)使用财政部门统一印制的罚款收据;
  (三)当场作出罚款处罚决定的(按本规定第十一条第一款规定当场收缴罚款除外),应告知被处罚人在7日内到指定的银行缴纳罚款;
  (四)告知当事人应有的权利;
  (五)罚没款项全部上交国库;
  (六)没收的物品应严格按照国家有关规定处置,不得自行留用。
  第十六条 执法局实施强制措施时,必须遵守下列规定:
  (一)向当事人发出经执法局有关负责人签发的通知书,并可以提请有关单位予以协助;
  (二)实施查封、扣押、证据先行登记保存时,应制作清单,写明财物、证据的名称、种类、规格、数量和完好程度,由承办人和当事人签名或盖章。清单内执行单位和当事人各执一份;
  (三)查封、扣押的期限不得超过一个月。特殊情况经市执法局批准可延长期限一个月;对不宜保存的鲜活、容易变质腐烂的物品,应当按照有关规定及时作出妥善处理;
  (四)可以委托有关单位保管被查封、扣押的物品,保管费由被查封、扣押人支付;
  (五)违法建筑物、构筑物和设施需要强制拆除的,应向当事人发出限期拆除通知书,逾期不拆除,由执法局组织拆除,所需费用由当事人支付或以料抵工。
  第十七条 市执法局认为区执法局作出的行政处罚违法不当的,应当责令其纠正。区执法局拒不纠正的,市执法局可以直接予以纠正。
  必要时,市执法局可以直接查处区执法局管辖的案件。
  第十八条 当事人对区执法局作出的处罚决定不服的,可依法向所在区人民政府或市执法局申请行政复议,也可直接向人民法院提起行政诉讼。对市执法局作出的处罚决定不服的,可依法向市人民政府申请行政复议或直接向人民法院提起行政诉讼。除法律、法规另有规定外,行政复议和行政诉讼期间不停止行政处罚的执行。当事人逾期不履行行政处罚决定的,由作出处罚决定的机关依法强制执行或申请人民法院强制执行。
  第十九条 对妨碍城市管理行政执法人员依法执行公务的,由公安机关依照《中华人民共和国治安管理处罚条例》的规定予以处罚。构成犯罪的,由司法机关依法追究其刑事责任。
  第二十条执法局应当建立行政执法监督制度。
  单位和公民对城市管理行政执法人员在执法中的违法行为,有权向执法局或者其上级部门举报,执法局或者其上级主管部门应当按规定及时查处。
  第二十一条 城市管理行政执法人员在执行本办法时,滥用职权、玩忽职守、徇私舞弊的,由所在单位给予行政处分。构成犯罪的,由司法机关依法追究其刑事责任。
  第四章 附 则
  第二十二条本办法由市法制局负责解释。
  第二十三条本办法从2002年1月1日起施行。




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