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1、.33 / 33.内容摘要政府职能向服务行政的转变,要求行政机关作出行政行为要以促进公共福祉的实现、保护行政相对人的合法权益为价值目标。尤其是关系到行政相对人权益的行政行为,要在依法行政理念的指导下,合法合理的作出,并能解决社会发展中出现的各种问题。在依法行政、加强服务型政府建设的背景下,本文着眼于行政机关在行使社会管理权的具体运作的全过程,从行使主体的合法性、行为的合理性以及具体程序三个视角客观的观察与评析行政行为的作出与依法行政的距离,进而为提升服务行政的品质提供可行思路。采取一票制的收费方式,将原本不收取门票的凤凰古城纳入收费范围是凤凰县政府为了规范当地旅游市场秩序,加大景区保护力度所采
2、取的措施。在凤凰收费案中政府行为主要包括决定收取门票、制定一票制收费方式的行政行为、行政收费等行为。案例中从行政主体作出收费决定到实施行政收费行为的整个过程,有关其合法性、合理性都存在许多争议。目前争议主要集中于景区的归属、行政收费主体的合法性、收费行为的合理性以及作出收费行为的正当程序这三个问题。在公物理论框架内,行政机关对景区进行收费是公物管理权的行使,应由合法的主体依据正当的程序合理行使权力；同时,对具有公共属性及公共福利性质物品的一般使用也是公众享有的权利,在对公物制定管理规则时是对公众一般使用权的限制,基于此,公众应当参与其中。本文首先在第一部分对个案进行透析,并厘清本文旨在研究的法
3、律争议,即凤凰古城的属性、收费主体的合法性及合理性、收费程序的正当性。第二部分具体分析景区的所有权归属,并结合公物理论阐述景区的公共属性及行政机关对公物的管理权,为后文有关行为合法性及合理性分析提供理论基础。第三、四部分结合现行法律规定具体分析收费主体的合法性及收费行为的合理性问题。第五部分尝试从行政参与角度对行政收费决定的运作提出几点思考,例如切实的实施公众参与制度、信息公开、调查听证、等程序,适时作出合理补偿以更好的保护相对人的权益,也增进行政行为的合理性。基于公共利益行政机关可以对公物的一般使用进行限制,但为了加大景区保护力度而收取门票,甚至变相提高票价并非是景区管理与保护的长久之策。在
4、依法行政、服务行政理念的指导下,作出行政收费行为时不仅应考量其合法合理性,还应体现民主1.性；作出收费决定更应考量其正当程序,这是本案留给行政法学界最厚重的思考,也是本文的创新之处。关键词：景区收费；收费行为合法性；正当程序2.AbstractThe transformation of the government functions to service administration, requesting theact of the authority transfer the target to promote the public welfare, to protect theadmi
5、nistrative relative persons legitimate rights and interests. Administrative behavior, inparticular to the administrative relative persons rights, should be guided by the concept ofadministration according to the law, legal and reasonable, and be able to address the variousissues that arise in the de
6、velopment of the society. In context of administration according tolaw, to strengthen the construction of the service-oriented Government, this paper focuses onthe administrative organs in the whole process of the specific operation, which formexercising of the bodys legality, the rationality of the
7、 behavior and the specific procedures ofthe administrative act ,in the order to objective observing and analyzing the administrativeaction to the distance of administration according to law and to provide feasible way forimproving the quality of service administration.Adopting the mode of one vote c
8、harge, including the ancient city of phoenix whichdose not in the scope of charge the tickets originally is Fenghuang Government in order tostandardize the order of the local tourism market, intensify protection of environmentmeasures taken. In the case of the phoenix charges in which charge ticket
9、acts includedecisions to collect the tickets, formulate a one vote charges, administrative fee and otheradministrative acts. In this case, in the whole process of administrative subject for decision toimplement the administrative fees, there is much controversy about its legitimacy andrationality. C
10、urrent dispute focused on attribution of the scenic spots, legitimacy of theadministrative charge subject, the rationality of the fees and make the fees due process thesethree questions.Within the framework of the theory of public property, the administrative organ to chargeis the exercise of public
11、 property management of scenic spot, should by the body of the legalbasis for proper program. At the same time, to have public properties and public welfarenature materials generally used are public rights, property management rules is a generalrestriction of the right of the public, based on this,
12、the public should be involved. This articlefirst dialysis in the first part of the case and clarify this article aims at studying the legaldispute, namely Phoenix property, pay the principal on the legality and rationality of theancient town, charges of the regularity. The second part specific analy
13、sis of the ownership of1.the scenic spot, combined with the theory of property on scenic area administration body onmanagement of public property and public property rights, later about the legality andrationality analysis for providing theoretical basis. Third and fourth part combined with theanaly
14、sis of the current laws and regulations charge main problems of legitimacy andrationality of the fees. From the angle of administrative participation of administrative feesand charges, the fifth decided to propose several thinking, for example, the concreteimplementation of the hearings on investiga
15、tion of public participation system, decides theoperation of several considerations, such as the practical implementation of publicparticipation, information disclosure, investigation procedures, such as hearings, and in duecourse make reasonable compensation to better protect the interests of the p
16、eople, promote therationality of administrative actions. Based on administrative organs can be used for limit thepublic property of the general public interest, but received tickets in order to increase theintensity of scenic protection, even disguised fare increases are not the management andprotection of the scenic lo
