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市人民政府办公室关于印发咸宁市全面推行行政执法公示制度执法全过程记录制度重大执法决定法制审核制度实施方案的通知

文       号 : 咸政办发〔2019〕24号 信息分类: 政府文件

发文机构: 咸宁市人民政府 成文日期: 2019年08月23日

名       称: 市人民政府办公室关于印发咸宁市全面推行行政执法公示制度执法全过程记录制度重大执法决定法制审核制度实施方案的通知

咸政办发〔201924


各县、市、区人民政府,市政府各部门,咸宁高新区管委会:

《咸宁市全面推行行政执法公示制度执法全过程记录制度重大执法决定法制审核制度实施方案》已经市人民政府同意,现印发给你们,请结合实际,认真组织实施。

咸宁市人民政府办公室

2019815

(此件公开发布)

咸宁市全面推行行政执法公示制度

执法全过程记录制度重大执法决定法制

审核制度实施方案

为贯彻落实《国务院办公厅关于全面推行行政执法公示制度执法全过程记录制度重大执法决定法制审核制度的指导意见》(国办发〔2018118号)和《省人民政府办公厅关于印发湖北省全面推行行政执法公示制度执法全过程记录制度重大执法决定法制审核制度实施方案的通知》(鄂政办发〔201935号)精神,严格规范行政执法行为,全面提高行政执法效能,结合我市实际,制定本方案。

一、总体要求

(一)指导思想。

以习近平新时代中国特色社会主义思想为指导,全面贯彻党的十九大和十九届二中、三中全会精神,以规范行政处罚、行政强制、行政检查、行政征收征用、行政许可等行为为重点,全面推行行政执法公示制度、执法全过程记录制度、重大执法决定法制审核制度(以下统称“三项制度”),推动形成权责统一、权威高效的行政执法体系和职责明确、依法行政的政府治理体系,确保行政机关依法履行法定职责,切实维护人民群众合法权益,为推进我市法治建设和高质量发展奠定坚实的基础。

(二)工作目标。

20203月底前,全市各级行政执法机关推行“三项制度”全面到位(垂管部门按国务院部委要求时限完成),实现执法信息公开透明、执法全过程留痕、执法决定合法有效,主要执法行为得到有效规范,行政执法能力和水平整体提升,行政执法行为被纠错率明显下降,行政执法的社会满意度显著提高,经济社会发展的法治环境更加优良。

二、任务措施

(一)全面推行行政执法公示制度。

各级行政执法机关按照“谁执法、谁公示”以及“谁执法、谁录入、谁负责”的要求,建立健全行政执法信息公示的内部审核和管理制度,及时准确地向社会公开行政执法基本信息和动态信息。涉及国家秘密、商业秘密、个人隐私等不宜公开的信息,依法确需要公开的,要作适当处理后公开。

1.强化事前公开。

1)各级行政执法机关要编制行政执法事项清单,明确行政执法主体、人员、职责、权责、依据、程序、监督方式、救济渠道等事前公开的内容,经本级编办审核后进行公示。(牵头单位:各级编办;责任单位:各级财政局、政务服务和大数据管理局、市场监管局、行政执法机关)

2)各级行政执法机关要根据“双随机、一公开”监管要求,编制本部门随机抽查事项清单,经本级市场监管局审核后进行公示。(牵头单位:各级市场监管局;责任单位:各级行政执法机关)

3)各级行政执法机关要编制本部门各类行政执法流程图和行政执法服务指南,并向社会公示。如有授权委托执法事项,相关部门应当列明委托依据并做好指引。(牵头单位:各级司法局;责任单位:各级政务服务和大数据管理局、行政执法机关)

2.规范事中公开。

1)行政执法人员在执行公务过程中,应当主动出示或者佩戴证件并表明身份;在进行监督检查、调查取证、采取强制措施和强制执行、送达执法文书等执法活动时,要主动出具行政执法文书,并告知当事人执法事由、执法依据、权利义务、救济方式和救济渠道等内容。有关部门要按照国家规定规范着装和佩戴统一标识。(责任单位:各级行政执法机关)

2)政务服务窗口应当设置信息公示牌或者电子信息屏,主动公示窗口办理业务名称、办理进度状态、办理人员身份、申请材料示范文本、咨询服务渠道、投诉举报受理等信息。(牵头单位:各级政务服务和大数据管理局;责任单位:各级行政执法机关)

3)行政执法人员在从事执法活动时,应当依法告知当事人执法事由、执法依据,享有陈述、申辩、申请听证、申请回避、救济等权利以及依法配合执法等义务。(责任单位:各级行政执法机关)

3.加强事后公开。

1)各级行政执法机关要在执法决定作出之日起20个工作日内,向社会公布执法机关、执法对象、执法类别、执法结论等信息,接受社会监督,行政许可、行政处罚的执法决定信息要在执法决定作出之日起7个工作日内公开,但法律、行政法规另有规定的除外。(责任单位:各级行政执法机关)

2)各级行政执法机关要建立健全执法决定信息公开发布、撤销和更新机制,及时对已发生变化的信息进行调整更新。(责任单位:各级行政执法机关)

3)各级行政执法机关应当于每年131日前统计公开本部门上年度行政执法总体情况和有关数据,并形成分析报告报本级人民政府、上级行政主管部门,同时抄送同级司法行政机关备案。(责任单位:各级行政执法机关)

4.明确公示载体。

市级行政执法监督平台建成后,全市的行政执法事前、事后信息在该平台集中公示。有门户网站或者其他政务新媒体的行政执法机关,也应当在门户网站或者其他政务新媒体上同时公示行政执法信息。(牵头单位:各级司法局;责任单位:各级政务服务和大数据管理局、编办、行政执法机关)

(二)全面推行执法全过程记录制度。

各级行政执法机关应当通过文字、音像等记录方式,对行政执法的启动直至执法程序完结经历的全部过程进行记录并归档,实现行政执法全过程留痕和可回溯管理。

1.完善文字记录。

1)各级行政执法机关应当以文字记录作为行政执法全过程记录的基本方式??梢圆捎弥街饰氖榛蛘叩缱游氖榻屑锹?。(责任单位:各级行政执法机关)

2)纸质文书记录应当使用行政机关印制的制式文书。各级行政执法机关应当参照省司法厅编制的行政执法文书基本格式和国务院有关部门统一适用的行政执法文书格式文本,结合本部门实际制作规范的执法文书格式。(责任单位:各级行政执法机关)

2.规范音像记录。

1)各级行政执法机关应当明确音像记录的现场执法活动范围清单并向社会公开,按照工作必需、厉行节约、性能适度、安全稳定、适量够用的原则配备音像记录设备,建设询问室和听证室等音像记录场所。(责任单位:各级财政局、行政执法机关)

2)音像记录过程中,行政执法人员应当按照统一规范的行政执法用语和音像记录用语对现场执法活动的时间、地点、执法人员、执法行为和音像记录的摄录重点等进行语音说明,并告知当事人及其他现场有关人员正在进行音像记录。(责任单位:各级行政执法机关)

3.加强记录管理和运用。

1)建立健全执法全过程记录信息收集、保存、管理、使用等工作制度,有条件的部门和地区可以推行全过程音像记录即时上传云存储模式,实现执法全过程同步网络管理。(责任单位:各级行政执法机关)

2)各级司法行政机关要切实履行行政执法监督职能,建立健全记录信息调阅监督制度,做到可实时调阅,切实加强监督,确保行政执法文字记录、音像记录规范、合法、有效。(牵头单位:各级司法局;责任单位:各级行政执法机关)

3)加强数据统计分析,充分发挥全过程记录信息在案卷评查、执法监督、评议考核、舆情应对、行政决策和健全社会信用体系等工作中的作用。善于发现行政执法薄弱环节,改进行政执法工作,依法公正维护执法人员和行政相对人的合法权益。(牵头单位:各级司法局;责任单位:各级行政执法机关)

(三)全面推行重大执法决定法制审核制度。

各级行政执法机关作出重大执法决定前,要严格进行法制审核,未经法制审核或者审核未通过的,不得作出决定。

1.明确审核机构。

各级行政执法机关要明确具体负责本部门重大执法决定法制审核的工作机构,确保法制审核工作有机构承担、有专人负责。各地各部门要按照原则上不少于本部门执法人员总数的5%的要求配齐、配强法制审核人员。要加强法制审核队伍的正规化、专业化、职业化建设,把政治素质高、业务能力强、具有法律专业素养的人员调整到法制审核岗位,建立法制审核人员定期培训制度。建立健全政府法律顾问和公职律师制度,对重大复杂疑难法律事务组织法律顾问和公职律师协助进行研究,提出意见建议。(牵头单位:各级司法局;责任单位:各级编办、行政执法机关)

2.明确审核范围。

1)凡涉及重大公共利益,可能造成重大社会影响或者引发社会风险,直接关系行政相对人或者第三人重大权益,经过听证程序作出行政执法决定,以及案件情况疑难复杂、涉及多个法律关系的,都必须进行法制审核。(责任单位:各级行政执法机关)

2)各级行政执法机关要明确界定重大行政执法决定的审核范围,编制重大执法决定法制审核目录,向社会公布,并报同级司法行政机关备案。上级行政执法机关要对下一级行政执法机关重大执法决定法制审核目录清单编制工作加强指导,明确重大执法决定事项的标准。(责任单位:各级行政执法机关)

3.明确审核内容。

重大行政执法决定的审核内容主要包括:(1)提交审核材料是否完整;(2)执法主体和权限是否合法,执法人员是否具备执法资格;(3)程序是否合法;(4)执法对象是否认定准确,相关事实是否清楚,证据是否充分、确凿;(5)适用法律、法规、规章是否准确,自由裁量是否适当;(6)行政执法文书是否完备、规范;(7)违法行为是否涉嫌犯罪,需要移送司法机关等;(8)其他应当审核的内容。法制审核机构完成审核后,要形成具体的书面审核意见,行政执法承办机构要对法制审核机构提出存在问题的审核意见进行研究,作出相应处理后再次报送法制审核。(责任单位:各级行政执法机关)

4.明确审核责任。

1)各级行政执法机关要确定法制审核流程图,明确送审材料报送要求和审核的方式、时限、责任,建立健全法制审核机构与行政执法承办机构对审核意见不一致时的协调机制。(责任单位:各级行政执法机关)

2)各级行政执法机关主要负责人是推动落实本机关重大执法决定法制审核制度的第一责任人,对本机关作出的行政执法决定负责。(责任单位:各级行政执法机关)

3)行政执法承办机构对送审材料的真实性、准确性、完整性,以及执法的事实、证据、法律适用、程序的合法性负责。法制审核机构对重大执法决定的法制审核意见负责。因行政执法承办机构的承办人员、负责法制审核的人员和审批行政执法决定的负责人滥用职权、玩忽职守、徇私枉法等,导致行政执法决定错误,要依纪依法追究相关人员责任。(责任单位:各级行政执法机关)

三、工作安排

(一)动员部署阶段(20198月底前)。

各县(市、区)人民政府和市级行政执法机关对照本实施方案以及《湖北省行政执法公示办法(试行)》《湖北省行政执法全过程记录办法(试行)》《湖北省重大行政执法决定法制审核办法(试行)》,结合工作实际,制定本地本部门具体工作方案。(责任单位:市司法局,各县市区人民政府,市级行政执法机关)

(二)实施准备阶段(201910月底前)。

各级政府组织对“三项制度”的宣传和培训工作,督促所属行政执法机关制定实施“三项制度”的任务清单、责任清单和时限清单,实施销号管理,确?!叭钪贫取钡玫接行涫?。(责任单位:市司法局,各县市区人民政府)

(三)规范落实阶段(201912月底前)。

各级各部门组织完成本级本部门“三项制度”的规范落实工作。实现执法基本信息和动态信息在特定平台全面、及时、准确公示;执法全过程文字记录实现统一规范,相关音像记录设备采购配发到位并投入实际应用,询问室、听证室等音像记录场所建设达标并验收完成;清单目录内的重大执法决定事项全部纳入法制审核范围,严格按照程序实施决策。(责任单位:市司法局,各级行政执法机关)

(四)自查评估阶段(20201月底前)。

各级行政执法机关完成本级推行“三项制度”自查评估和验收申报工作,并将自查评估结果和验收申报材料报本级政府,同时抄送同级司法行政机关。(责任单位:市司法局,各级行政执法机关)

(五)检查验收阶段(20202月底前)。

20202月上旬开始,市、县(市、区)人民政府组织对所属行政执法机关和乡镇政府推行“三项制度”的进度、质量、效果情况进行抽查和通报,工作落实好的给予表扬,落实差的限期整改并给予批评。抽查工作结束后,形成检查情况报告报上一级政府,同时抄送上一级司法行政机关。抽查情况直接纳入各地各部门法治政府考核成绩。(责任单位:市司法局,各县市区人民政府)

四、组织保障

(一)加强组织领导。各地各部门主要负责人要将贯彻落实“三项制度”作为全面加强法治政府建设的重要举措抓实、抓好,成立领导小组并担任组长,切实担负起全面推行“三项制度”第一责任人的职责。市、县(市、区)人民政府要建立司法行政、编制管理、公务员管理、信息公开、电子政务、发展改革、财政、市场监管等部门参加的全面推行“三项制度”工作协调机制。各有关部门要加强对本系统全面推行“三项制度”工作的指导,督促下级部门严格规范实施“三项制度”。

(二)加强制度体系建设。各地各部门要以全面推行“三项制度”为契机,进一步加强和完善执法岗位、执法资格和证件、行政执法裁量基准、行政执法案卷制作和评查、行政执法案例指导、行政执法投诉举报以及行政执法考核监督等行政执法制度建设,形成与“三项制度”衔接配套、统筹行政执法各个环节的制度体系。

(三)加强培训宣传。各地各部门要组织做好“三项制度”的专题培训,积极组织新闻媒体对推行“三项制度”工作进行全方位、多角度宣传报道,重点宣传全面推行“三项制度”的重要意义、主要做法、典型经验和实施效果,发挥示范带动作用,及时回应社会关切,合理引导社会预期,为全面推行“三项制度”营造良好的社会氛围。

(四)加强执法保障。各地各部门要建立责任明确、管理规范、投入稳定的执法保障机制,本着“因地制宜、务实高效”的原则,制定装备配备规划和年度实施计划,将行政执法装备采购、维护等费用纳入同级财政预算。各级财政、公务员管理、人社部门要切实保障执法人员待遇,完善基层执法岗位人员的工资政策,建立和实施执法人员人身意外伤害和工伤保险制度,落实国家抚恤政策,提高执法人员履职积极性,增强执法队伍稳定性。

(五)加强信息化建设。各地各部门要结合“三项制度”,全面推行网上受理、网上审批、网上办公,让数据多跑路、群众少跑腿,为行政执法更规范、群众办事更便捷、政府治理更高效、营商环境更优化奠定基础。市级加紧建立行政执法监督平台,并与司法部的行政执法综合管理监督信息系统实现互联互通,加快执法信息化建设步伐,实现执法信息网上录入、执法程序网上流转、执法活动网上监督、执法决定实时推送、执法信息统一公示、执法信息网上查询。加快推进执法信息互联互通共享和人工智能技术在行政执法实践中的运用,提高政府治理的精准性和有效性。

(六)加强社会监督。探索完善行政执法社会监督机制,市、县(市、区)人民政府从社会各界人士中聘请行政执法监督员,建立行政执法监督员库。有针对性地邀请行政执法监督员亲身参与涉及民生、营商环境、重大公共利益等领域的行政执法活动,对执法行为进行全面、客观、及时地评价、监督,倒逼行政执法机关严格规范公正文明执法。

(七)加强监督检查。各级政府要将“三项制度”推进情况纳入法治政府建设考评指标体系,纳入年底效能目标考核体系,建立督查情况通报制度,坚持鼓励先进与鞭策落后相结合,充分调动全面推行“三项制度”工作的积极性、主动性。对工作不力的要及时督促整改,对工作中出现问题造成不良后果的单位及人员要通报批评,依纪依法问责。


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