自从启蒙思想家提出天赋人权以来，人的权利就有了不容置疑的神圣性质。权 利依赖救济。公务员的行政人与自然人的双重身份，决定其不应拥有凌驾于一般社 会成员的额外权利，同时当其基本权利受到损害时，特别是遭受来自政府机构的侵 犯时，同样拥有依法定程序与方法寻求帮助与救济的权利。在法治行政的今天，当 其它地区行政发展的进程中体现出大幅度保障公务员基本权利时，我国行政法理论 和实务视野中，对公务员权利救济局限于内部行政救济，排斥司法救济，已不能适 应宪政发展与人权保障的时代要求，本文力图从公务员与行政机关之间的关系定位 的角度立论，梳理其理论基础的演变，并比较大陆和英美法系法治国家和地区的经 验和做法，从制度创新角度提出公务员权利救济制度的完善构想。设想稳妥渐进地 改造现行公务员权利救济的制度，探讨引入司法诉讼程序的可行性。作者认为，这 样才能切合建立和谐社会的宗旨，促进公共行政能力的提高，与尊重宪法，建设宪 政国家和保障人权的目标亦不相违背。 全文共分五部分。 第一部分是全文的奠基部分，界定本文讨论主题的定义和范围。先从行文所研 究的公务员的界定、公务员权利、公务员权利救济等相关概念的层层解读入手，就 报告所涉主题的概念划定一个大致框架，并在框架内展开讨论。 第二部分详细阐述了西方国家随行政法学产生而发展的特别权力关系理论。从 历史发生学分析我国公务员权利救济制度，指出该制度并不是受特别权力关系影响。 接下来，行文梳理作为特别权力关系理论批判依据的人权理论、宪政理论；对特别 权力关系进行修正的基础关系与管理关系理论、重要性理论、特别法律关系理论。 公务员权利救济制度应以民主和法治为基本价值取向，寻求行政救济和司法救济的 结合，为第四部分的制度构想奠定理论基础。 第三部分在第二部分的理论基础上，分别介绍了大陆和英美法系法治国家的公 务员权利救济制度，并总结其共性特点以及能为我所用的先进经验。 第四部分对我国公务员权利救济制度的现状进行分析，指出权利救济的范围、 受理机关、司法渠道缺失、法规缺乏衔接等制度缺失。这是提出具体问题，为下文 解决问题提供目标。 第五部分提出完善我国公务员权利救济制度，引入司法救济程序的可行性。通 过对司法救济程序的正当性、优越性及其障碍的权衡，探讨引入司法诉讼程序的可 行性，并进而提出引入司法救济程序的具体操作方案。 关键词，公务员权利救济 司法救济 可行性2 Study of the Feasibility of the Introduction of Judicial Relief of Remedy of Right of Civil Servant in Our Country Abstract Since the enlightenment thinkers raised natural rights, the people have the right to the sacred nature of the doubt. The right dependence relieves. Civil administration and the natural dual identity, their decision should not override the general members of society have additional rights, but when their basic rights are prejudiced, particularly suffered from government agencies violated, the law will have the same procedures and methods for help with the relief rights. Today, the administration of the rule of law, when the other regions in the process of developing a significant protection of the basic rights of civil servants, the theory and practice of administrative law perspective, the rights of civil servants confined to internal administrative relief, exclusion judicial relief has not to the protection of human rights and constitutional development requirements of the times, this article seeks to civil servants and the executive position of the relationship between the point of view of, combing the evolution of its theoretical basis, and compare the mainland of the rule of law and common law countries and regions experience and practice, the angle of the civil service system innovation system of perfect relief right idea. Sound progressive vision to transform the existing civil service rights of the relief system, the introduction of the feasibility of judicial proceedings. The writer believes that, in order to build a harmonious society with the aim of promoting the improvement of the capacity of public administration, and respect for the constitution, the constitutional state-building and protection of human rights does not run counter to the goal. The full text is divided into five parts. The first part is the full text of the cornerstones of the defining theme of this paper to discuss the definition and scope. Research by the first read the definition of civil servants, the civil service rights, the rights of civil servants relief, and other related start with the concept of layers of interpretation on the theme of the paper the concept of a general framework of delineation, and within the framework of discussions. Elaborate on the second part of the Western countries with the development of administrative law, the creation of the theory of special power relationship. From a historical analysis of China’s civil service in3 the right relief system, pointed out that the system is not affected by the special power relationship. Next, as a special language carding critical power relations based on the theory of human rights theory, constitutional theory, the special relationship between power relations and the basis of that relationship management theory, the importance of theory, in particular legal relationship theory. Civil rights relief system to democracy and the rule of law should be the basic value orientation, and seeking administrative relief and the combination of judicial relief, for the fourth part of the theoretical foundation for the system concept. The third part in the second part of the theoretical foundation, the mainland introduced the rule of law and common law rights of civil servants national relief system, and summed up with the common characteristics and that I was able to use the advanced experience. The fourth part of the relief system of the civil service rights of an analysis of the status and rights of relief that the scope of the admissibility organs, judicial channels deletion, regulations, the lack of convergence system deficiencies. This is the specific problem, solve the problem provided below target. Part V of the civil service to improve the rights of our relief system, the introduction of the feasibility of judicial relief procedures. Based on the legitimacy of judicial relief procedures, the advantages and obstacles to weigh on the introduction of the feasibility of judicial proceedings, and thus proposed the introduction of the specific procedures for judicial relief operation programme. Key words: Civil Rights Relief, Judicial Relief, Feasibility4 目 录 前言.........................................................1 1 公务员权利救济概述........................................4 1.1 公务员的界定............................................4 1.1.1 公务员的含义..........................................4 1.1.2 公务员的范围..........................................5 1.2 公务员的权利及其价值....................................8 1.2.1 公务员的权利..........................................8 1.2.2 公务员权利的价值......................................10 1.3 公务员权利救济..........................................11 1.3.1 公务员权利救济的含义..................................12 1.3.2 公务员权利救济的特征..................................12 1.3.3 公务员权利救济的分类..................................12 1.3.4 权利救济的途径、对象、机构............................13 2 公务员权利救济的理论基础.................................13 2.1 特别权力关系理论........................................13 2.1.1 特别关系理论概述......................................14 2.1.2 对特别权力关系理论的评价..............................14 2.2 特别权力关系理论的批判..................................15 2.2.1 人权理论..............................................15 2.2.2 宪政理论..............................................16 2.3 特别权力关系理论的修正..................................18 2.3.1 “基础关系与经营关系”理论............................18 2.3.2 “重要性理论”........................................19 2.3.3 特别法律关系理论......................................19 3 西方法治国家公务员权利救济制度考察..................20 3.1 美国模式................................................20 3.1.1 公务员的申诉制度......................................21 3.1.2 司法审查..............................................21 3.2 法国模式................................................22 3.2.1 行政