公职人员二元处分并行的制度逻辑与调适路径——以无缝隙监督体系的构建为取向  

The Institutional Logic and Adjustment Path of the Dual-Track Disciplinary System for Public Officials—with a Focus on Constructing a Seamless Supervision System

作　　者：朱智毅 ZHU Zhiyi

机构地区：[1]中国农业大学人文与发展学院

出　　处：《经贸法律评论》2024年第2期121-141,共21页Business and Economic Law Review

基　　金：国家社会科学基金青年项目“国家监察权与其他监督权协调衔接法律制度研究”(项目批准号:18CFX012)。

摘　　要：公职人员处分制度的完善与否直接影响权力监督的效能与反腐工作的权威。《政务处分法》确立的“政务处分”与任免机关、单位“处分”并行的双轨惩戒制度,并非只是一种基于立法技术考量作出的概念调适及处理,须从构建更加丰富且立体化的公职人员惩戒体系、提炼构造出功能互补的惩戒法体系结构和实现精准监督三个层面去认识双轨惩戒制度的构造优势与生成逻辑。同时,虽然二元处分并行的制度在强化外部监督、促进监督全覆盖等方面取得了突出成效,但从制度的执行情况看,并行的两套处分体系并未真正实现“无缝衔接”,双轨惩戒制度仍面临两类处分适用失衡与监察机关对任免机关、单位实施处分的行为“再监督”乏力等问题。可通过借鉴“无缝隙组织”理论,从实现内外部惩戒的无缝衔接、权限划分的无缝闭合以及惩戒实施后的无缝隙管理三方面入手对双轨惩戒制度进行“再造”,使两类处分从相对割裂、各自为战的状态向“无缝隙”的惩戒监督体系转变。The effectiveness of power supervision and the authority of anti-corruption efforts are directly impacted by the perfection of the public official disciplinary system.The dual-track disciplinary system established by the Administrative Sanction Law,where“administrative sanctions”and sanctions from appointment and removal authorities or units run in parallel,is not merely a concept adjustment and handling based on legislative technical considerations.We need to understand the advantages and generation logic of the dual-track disciplinary system from three aspects:constructing a more diverse and three-dimensional disciplinary system for public officials,refining a functional complementary structure of disciplinary laws,and achieving precise supervision.While the dual-track parallel disciplinary system has achieved outstanding results in strengthening external supervision and promoting full coverage of supervision,it has not truly achieved a“seamless connection”in practice.The system still faces issues such as imbalance in the application of two types of disciplinary measures and weak“re-supervision”by supervisory agencies over the disciplinary actions of appointment and removal authorities or units.By drawing lessons from the“seamless organization”theory,efforts can be made to“reconstruct”the dual-track disciplinary system from three aspects:achieving seamless connection of internal and external punitive measures,seamless closure of authority division,and seamless management after punitive implementation.This transformation aims to shift the two types of disciplinary measures from a relatively fragmented and independent state to a seamless punitive supervision system.

关 键 词：政务处分 双轨惩戒制度 “无缝隙组织”理论 

分 类 号：D922.1[政治法律—宪法学与行政法学]