黄志诉厦门市劳动与社会保障局案

黄志诉厦门市劳动与社会保障局案 黄志诉厦门市劳动与社会保障局案”法院裁判文及案件评析 福建省厦门市思明区人民法院 行政裁定书 (2005)思行初字第50号 原告黄志，男，1975年10月30日出生，汉族，厦门市集美区树一派化妆品店经营者，住厦门市湖里区南山路149号201室。 委托代理人董志武、李晖，福建世礼律师事务所律师。 被告厦门市劳动和社会保障局，住所地厦门市长青路191号劳动力市场大厦。 法定代人林建农，局长。 委托代理人张雪芳，厦门市劳动和社会保障局工作人员。 委托代理人陈河南，厦门市集美区人事劳动和社会保障局工作人员。 第三人蔡香菊，女，1977年11月30日出生，汉族，住厦门市集美区文达路23号之一106室。 原告黄志不服被告厦门市劳动和社会保障局社会保障行政确认，向本院提起行政诉讼。本院受理后，依法由审判员李辉东、王宇凡和林伟斌组成合议庭，公开开庭审理了本案。原告委托代理人董志武和李晖、被告委托代理人张雪芳和陈河南、第三人蔡香菊到庭参加诉讼。经福建省高级人民法院批准，本案延长审理期限二个月。本案现已审理终结。 原告黄志诉称，原告职员蔡香菊于2004年10月因交通事故受伤，同年12月向被告申请工伤认定。被告在没有查清事实且程序明显不当的情况下，作出2004050799号职工工伤认定。请求法院判决撤销该工伤认定。 被告厦门市劳动和社会保障局辩称，被告于2005年1月28日作出2004050799号职工工伤认定，同年2月6日送达原告。2005年4月10日原告起诉，距离其收到认定书已63日。根据《工伤保险条例》第五十三条第(一)项规定，行政复议是行政诉讼的前置程序。本案原告未申请行政复议而径直提起行政诉讼，违反法定程序，依法应予驳回其起诉。 第三人蔡香菊述称，同意被告的答辩意见。 经审理查明，原告黄志系厦门市集美区树一派化妆品店经营者，第三人蔡香菊系其职员。2004年10月，第三人因交通事故受伤。2004年12月，第三人向被告厦门市劳动和社会保障局申请工伤认定。2005年1月28日，被告作出2004050799号《厦门市职工工伤与职业病认定书》，认定第三人受伤为工伤。该认定书于2005年2月6日送达原告。原告不服，向本院提起行政诉讼，起诉状的落款时间为2005年4月10日。原告未申请行政复议。庭审中，原告代理人认为，在工伤认定案件中，行政复议并非行政诉讼的前置程序，复议和诉讼是可选择的。以上事实，有起诉状、《厦门市职工工伤与职业病认定书》、《送达回证》以及庭审笔录予以证实。 本院认为，在工伤认定案件中，行政复议是否行政诉讼的前置程序，取决于对法律条文的理解。关于行政复议与行政诉讼衔接，存在以下立法模式: (一)行政复议与行政诉讼选择运用 第一种模式，语言结构为“可以申请复议，也可以直接提起诉讼”。例如，行政诉讼法第三十七条第一款规定:“对属于人民法院受案范围的行政案件，公民、法人或者其他组织可以先向上一级行政机关或者法律、法规规定的行政机关obstacles, correcting misunderstandings, advocate good cadre style. 2, adhere to the scientific decision-making and democratic decision-making decision-making law. Correctly handle to ensure that government decrees and based on the actual creative work, giving full play to subjective initiative, put an end to implement the conference meeting, to document the implementation of documents etc. Improve the scientific and democratic decision-making mechanism, improve and implement the decision to solicit the views of experts, the public hearing system. Improve the important decision of risk assessment mechanism and legal review mechanism. 3, to promote team unity. Uphold and improve the system of annual party book talk heart to heart, mind and Party members, Party members to exchange each other not less than 2 times. The implementation of sound team democratic life system, consolidate and enhance the party's mass line educational practice will promote the achievement of the topic of democratic life, criticism and self-criticism normalization, a long-term. Adhere to the party on the basis of the principle of unity, enhance internal communication, strengthen internal supervision, self Sleep maintenance team collective image and authority. (three) to ensure the execution is not strong or disguised to resist government decrees issues. Individual Bureau leadership team members lack of learning political theory system, not from the objective reality, not with the party's interests above all the principles to deal with personal problems. In the specific work safety supervision in the execution is not strong, in the implementation of the decision to deploy the discount, make choices, engage in work, the implementation of the agreement, uncomfortable is not performed, open or disguised to resist, the lack of subject consciousness of the party organization, the lack of resist in society all kinds of bad habits and unwholesome tendencies of courage Gas and courage. Such as the liability insurance of safe production work, individual leaders that have someone arrested, and no funding, not in the global chess perspective to the countryside to carry out daily inspection, found none of my business acceptance of the resumption of production in an armchair, with a pen, indifferent. Corrective measures: (LED Leadership: Luo Mingjun, rectification time: before September 25th, insist for a long time) 1, to strengthen the sense of responsibility, work to solve the lack of decent occupation explain away, conduct problems. To establish the overall concept, eliminate departmentalism. Strict assessment and accountability, to solve the spiritual slack, nianqingpazhong, status quo, To establish and perfect the muddle along and other issues. Bureau staff conduct work regulations, standardize the behavior of personnel. 2, strengthen the responsibility system. One is the in-depth study and implement the "Hunan provincial Party and government leading cadres Interim Provisions on the work safety of a pair of > (Hunan Office issued 2013 No. 申请复议，对复议不服的，再向人民法院提起诉讼;也可以直接向人民法院提起诉讼。”又如，反不正当竞争法第二十九条规定:“当事人对监督检查部门作出的处罚决定不服的，可以自收到处罚决定之日起十五日内向上一级主管机关申请复议;对复议决定不服的，可以自收到复议决定书之日起十五日内向人民法院提起诉讼;也可以直接向人民法院提起诉讼。” 第二种模式，语言结构为“可以申请复议或者提起诉讼”。例如，医疗机构管理条例第五十一条规定:“当事人对行政处罚决定不服的，可以依照国家法律、法规的规定申请行政复议或者提起行政诉讼。” 第三种模式，不作具体规定。在该模式下，当事人依照行政诉讼法第三十七条第一款规定，直接行使救济选择权。 以上三种模式，是目前复议与诉讼选择运用的常见立法模式，当事人对此不会产生争议。 (二)行政复议前置 行政复议前置最无争议的立法模式，是在条文中规定“应当先申请行政复议”。例如，行政复议法第三十条规定:“公民、法人或者其他组织认为行政机关的具体行政行为侵犯其已经依法取得的土地、矿藏、水流、森林、山岭、草原、荒地、滩涂、海域等自然资源的所有权或者使用权的，应当先申请行政复议;对行政复议决定不服的，可以依法向人民法院提起行政诉讼。” 在司法实务中，以下情形属于行政复议前置: 1(治安管理处罚案件。治安管理处罚条例第三十九条规定:“被裁决受治安管理处罚的人或者被侵害人不服公安机关或者乡(镇)人民政府裁决的，在接到通知后五日内，可以向上一级公安机关提出申诉，由上一级公安机关在接到申诉后五日内作出裁决;不服上一级公安机关裁决的，可以在接到通知后五日内向当地人民法院提起诉讼。” 2(纳税争议案件。税收征收管理法第八十八条第一款规定:“纳税人、扣缴义务人、纳税担保人同税务机关在纳税上发生争议时，必须先依照税务机关的纳税决定缴纳或者解缴税款及滞纳金或者提供相应的担保，然后可以依法申请行政复议;对行政复议决定不服的，可以依法向人民法院起诉。”海关法第六十四条规定:“纳税义务人同海关发生纳税争议时，应当缴纳税款，并可以依法申请行政复议;对复议决定仍不服的，可以依法向人民法院提起诉讼。” 上述法律条文的语言结构为“可以申请复议;对复议决定不服的，可以起诉”。该模式属于行政复议前置的立法模式之一，不仅是实务上的通常见解，也可从法律体系本身以及法律条文变迁推断。例如，税收征收管理法第八十八条第二款规定:“当事人对税务机关的处罚决定、强制执行或者税收保全措施不服的，可以依法申请行政复议，也可以依法向人民法院起诉。”该款规定是典型的选择运用模式。如果税收征收管理法第八十八条第一款规定可作选择运用模式理解的话，那么立法机关无需在同一部法律中对救济条款使用不同的立法语言。又如，治安管理处罚法(2006年3月1日起施行)第一百零二条规定:“被处罚人对治安管理处罚决定不服的，可以依法申请行政复议或者提起行政诉讼。”如果治安管理处罚条例第三十九条规定的是选择运用模式的话，那么立法机关在制定治安管理处罚法时仍可沿用治安管理处罚条例的语言结构。在法律界众所周知的事实是，治安管理处罚法第一百零二条改变了现行治安处罚案件复议前置的规定，赋予了当事人自主选择法律救济渠道的权利。 obstacles, correcting misunderstandings, advocate good cadre style. 2, adhere to the scientific decision-making and democratic decision-making decision-making law. Correctly handle to ensure that government decrees and based on the actual creative work, giving full play to subjective initiative, put an end to implement the conference meeting, to document the implementation of documents etc. Improve the scientific and democratic decision-making mechanism, improve and implement the decision to solicit the views of experts, the public hearing system. Improve the important decision of risk assessment mechanism and legal review mechanism. 3, to promote team unity. Uphold and improve the system of annual party book talk heart to heart, mind and Party members, Party members to exchange each other not less than 2 times. The implementation of sound team democratic life system, consolidate and enhance the party's mass line educational practice will promote the achievement of the topic of democratic life, criticism and self-criticism normalization, a long-term. Adhere to the party on the basis of the principle of unity, enhance internal communication, strengthen internal supervision, self Sleep maintenance team collective image and authority. (three) to ensure the execution is not strong or disguised to resist government decrees issues. Individual Bureau leadership team members lack of learning political theory system, not from the objective reality, not with the party's interests above all the principles to deal with personal problems. In the specific work safety supervision in the execution is not strong, in the implementation of the decision to deploy the discount, make choices, engage in work, the implementation of the agreement, uncomfortable is not performed, open or disguised to resist, the lack of subject consciousness of the party organization, the lack of resist in society all kinds of bad habits and unwholesome tendencies of courage Gas and courage. Such as the liability insurance of safe production work, individual leaders that have someone arrested, and no funding, not in the global chess perspective to the countryside to carry out daily inspection, found none of my business acceptance of the resumption of production in an armchair, with a pen, indifferent. Corrective measures: (LED Leadership: Luo Mingjun, rectification time: before September 25th, insist for a long time) 1, to strengthen the sense of responsibility, work to solve the lack of decent occupation explain away, conduct problems. To establish the overall concept, eliminate departmentalism. Strict assessment and accountability, to solve the spiritual slack, nianqingpazhong, status quo, To establish and perfect the muddle along and other issues. Bureau staff conduct work regulations, standardize the behavior of personnel. 2, strengthen the responsibility system. One is the in-depth study and implement the "Hunan provincial Party and government leading cadres Interim Provisions on the work safety of a pair of > (Hunan Office issued 2013 No. 本案中，当事人对《工伤保险条例》第五十三条第(一)项是否规定复议前置，理解上存在分歧。该项条文规定:“有下列情形之一的，有关单位和个人可以依法申请行政复议;对复议决定不服的，可以依法提起行政诉讼:(一)申请工伤认定的职工或者其直系亲属、该职工所在单位对工伤认定结论不服的;„„”通过对行政复议与行政诉讼衔接立法模式的归纳总结，本院认为，《工伤保险条例》第五十三条第(一)项规定工伤认定案件适用复议前置，即行政复议为提起诉讼的必经程序。原告代理人认为工伤认定案件可选择复议或诉讼，没有法律依据。行政诉讼法第三十七条第二款规定:“法律、法规规定应当先向行政机关申请复议，对复议不服再向人民法院提起诉讼的，依照法律、法规的规定。”原告未申请行政复议程序径直提起行政诉讼，依法应予驳回。依照《最高人民法院关于执行〈中华人民共和国行政诉讼法〉若干问的解释》第四十四条第一款第(七)项的规定，裁定如下: 驳回原告黄志的起诉。 本案案件受理费人民币50元，由原告负担。 如不服本裁定，可在裁定书送达之日起十日内，向本院递交上诉状，并按对方当事人的人数提出副本，上诉于福建省厦门市中级人民法院。 审 判 长 审 判 员 审 判 员 二??五年九月十二日 书 记 员 附件:本裁定所适用的司法解释 《最高人民法院关于执行〈中华人民共和国行政诉讼法〉若干问题的解释》 第四十四条 有下列情形之一的，应当裁定不予受理;已经受理的，裁定驳回起诉: „„ obstacles, correcting misunderstandings, advocate good cadre style. 2, adhere to the scientific decision-making and democratic decision-making decision-making law. Correctly handle to ensure that government decrees and based on the actual creative work, giving full play to subjective initiative, put an end to implement the conference meeting, to document the implementation of documents etc. Improve the scientific and democratic decision-making mechanism, improve and implement the decision to solicit the views of experts, the public hearing system. Improve the important decision of risk assessment mechanism and legal review mechanism. 3, to promote team unity. Uphold and improve the system of annual party book talk heart to heart, mind and Party members, Party members to exchange each other not less than 2 times. The implementation of sound team democratic life system, consolidate and enhance the party's mass line educational practice will promote the achievement of the topic of democratic life, criticism and self-criticism normalization, a long-term. Adhere to the party on the basis of the principle of unity, enhance internal communication, strengthen internal supervision, self Sleep maintenance team collective image and authority. (three) to ensure the execution is not strong or disguised to resist government decrees issues. Individual Bureau leadership team members lack of learning political theory system, not from the objective reality, not with the party's interests above all the principles to deal with personal problems. In the specific work safety supervision in the execution is not strong, in the implementation of the decision to deploy the discount, make choices, engage in work, the implementation of the agreement, uncomfortable is not performed, open or disguised to resist, the lack of subject consciousness of the party organization, the lack of resist in society all kinds of bad habits and unwholesome tendencies of courage Gas and courage. Such as the liability insurance of safe production work, individual leaders that have someone arrested, and no funding, not in the global chess perspective to the countryside to carry out daily inspection, found none of my business acceptance of the resumption of production in an armchair, with a pen, indifferent. Corrective measures: (LED Leadership: Luo Mingjun, rectification time: before September 25th, insist for a long time) 1, to strengthen the sense of responsibility, work to solve the lack of decent occupation explain away, conduct problems. To establish the overall concept, eliminate departmentalism. Strict assessment and accountability, to solve the spiritual slack, nianqingpazhong, status quo, To establish and perfect the muddle along and other issues. Bureau staff conduct work regulations, standardize the behavior of personnel. 2, strengthen the responsibility system. One is the in-depth study and implement the "Hunan provincial Party and government leading cadres Interim Provisions on the work safety of a pair of > (Hunan Office issued 2013 No. (七)法律、法规规定行政复议为提起诉讼必经程序而未申请复议的; „„ 原告黄志不服被告厦门市劳动和社会保障局社会保障行政确认案 【要点提示】 法律法规关于相对人对行政行为“可以申请复议;对复议决定不服的，可以起诉”的规定，没有明确该情形是否属于复议前置，而实践中一般是作为复议前置情形处理。近来，有专家和法官认为该类规定应作复议与诉讼选择适用理解，亦有当事人不经复议径直起诉。本案运用多种法律解释方式，全面论证了上述情形属于复议前置规定。 【案件索引】 一审法院:福建省厦门市思明区人民法院(2005)思行初字第50号(2005年9月12日)。 当事人未上诉。 【案情】 原告黄志，男，1975年10月30日出生，汉族，厦门市集美区树一派化妆品店经营者，住厦门市湖里区南山路149号201室。 被告厦门市劳动和社会保障局，住所地厦门市长青路191号劳动力市场大厦。 第三人蔡香菊，女，1977年11月30日出生，汉族，住厦门市集美区文达路23号之一106室。 原告黄志系厦门市集美区树一派化妆品店经营者，第三人蔡香菊系其职员。2004年10月，第三人因交通事故受伤。2004年12月，第三人向被告厦门市劳动和社会保障局申请工伤认定。2005年1月28日，被告作出2004050799号《厦门市职工工伤与职业病认定书》，认定第三人受伤为工伤。该认定书于2005年2月6日送达原告。原告不服，向本院提起行政诉讼，起诉状的落款时间为2005年4月10日。原告未申请行政复议。庭审中，原告代理人认为，在工伤认定案件中，行政复议并非行政诉讼的前置程序，复议和诉讼是可选择的。 【审判】 原告黄志诉称，原告职员蔡香菊于2004年10月因交通事故受伤，同年12月向被告申请工伤认定。被告在没有查清事实且程序明显不当的情况下，作出2004050799号职工工伤认定。请求法院判决撤销该工伤认定。 被告厦门市劳动和社会保障局辩称，被告于2005年1月28日作出2004050799号职工工伤认定，同年2月6日送达原告。2005年4月10日原告起诉，距离其收到认定书已63日。根据《工伤保险条例》第五十三条第(一)项规定，行政复议是行政诉讼的前置程序。本案原告未申请行政复议而径直提起行政诉讼，违反法定程序，依法应予驳回其起诉。 第三人蔡香菊述称，同意被告的答辩意见。 obstacles, correcting misunderstandings, advocate good cadre style. 2, adhere to the scientific decision-making and democratic decision-making decision-making law. Correctly handle to ensure that government decrees and based on the actual creative work, giving full play to subjective initiative, put an end to implement the conference meeting, to document the implementation of documents etc. Improve the scientific and democratic decision-making mechanism, improve and implement the decision to solicit the views of experts, the public hearing system. Improve the important decision of risk assessment mechanism and legal review mechanism. 3, to promote team unity. Uphold and improve the system of annual party book talk heart to heart, mind and Party members, Party members to exchange each other not less than 2 times. The implementation of sound team democratic life system, consolidate and enhance the party's mass line educational practice will promote the achievement of the topic of democratic life, criticism and self-criticism normalization, a long-term. Adhere to the party on the basis of the principle of unity, enhance internal communication, strengthen internal supervision, self Sleep maintenance team collective image and authority. (three) to ensure the execution is not strong or disguised to resist government decrees issues. Individual Bureau leadership team members lack of learning political theory system, not from the objective reality, not with the party's interests above all the principles to deal with personal problems. In the specific work safety supervision in the execution is not strong, in the implementation of the decision to deploy the discount, make choices, engage in work, the implementation of the agreement, uncomfortable is not performed, open or disguised to resist, the lack of subject consciousness of the party organization, the lack of resist in society all kinds of bad habits and unwholesome tendencies of courage Gas and courage. Such as the liability insurance of safe production work, individual leaders that have someone arrested, and no funding, not in the global chess perspective to the countryside to carry out daily inspection, found none of my business acceptance of the resumption of production in an armchair, with a pen, indifferent. Corrective measures: (LED Leadership: Luo Mingjun, rectification time: before September 25th, insist for a long time) 1, to strengthen the sense of responsibility, work to solve the lack of decent occupation explain away, conduct problems. To establish the overall concept, eliminate departmentalism. Strict assessment and accountability, to solve the spiritual slack, nianqingpazhong, status quo, To establish and perfect the muddle along and other issues. Bureau staff conduct work regulations, standardize the behavior of personnel. 2, strengthen the responsibility system. One is the in-depth study and implement the "Hunan provincial Party and government leading cadres Interim Provisions on the work safety of a pair of > (Hunan Office issued 2013 No. 思明区人民法院认为，在工伤认定案件中，行政复议是否行政诉讼的前置程序，取决于对法律条文的理解。关于行政复议与行政诉讼衔接，存在以下立法模式: (一)行政复议与行政诉讼选择运用 第一种模式，语言结构为“可以申请复议，也可以直接提起诉讼”。例如，行政诉讼法第三十七条第一款规定:“对属于人民法院受案范围的行政案件，公民、法人或者其他组织可以先向上一级行政机关或者法律、法规规定的行政机关申请复议，对复议不服的，再向人民法院提起诉讼;也可以直接向人民法院提起诉讼。”又如，反不正当竞争法第二十九条规定:“当事人对监督检查部门作出的处罚决定不服的，可以自收到处罚决定之日起十五日内向上一级主管机关申请复议;对复议决定不服的，可以自收到复议决定书之日起十五日内向人民法院提起诉讼;也可以直接向人民法院提起诉讼。” 第二种模式，语言结构为“可以申请复议或者提起诉讼”。例如，医疗机构管理条例第五十一条规定:“当事人对行政处罚决定不服的，可以依照国家法律、法规的规定申请行政复议或者提起行政诉讼。” 第三种模式，不作具体规定。在该模式下，当事人依照行政诉讼法第三十七条第一款规定，直接行使救济选择权。 以上三种模式，是目前复议与诉讼选择运用的常见立法模式，当事人对此不会产生争议。 (二)行政复议前置 行政复议前置最无争议的立法模式，是在条文中规定“应当先申请行政复议”。例如，行政复议法第三十条规定:“公民、法人或者其他组织认为行政机关的具体行政行为侵犯其已经依法取得的土地、矿藏、水流、森林、山岭、草原、荒地、滩涂、海域等自然资源的所有权或者使用权的，应当先申请行政复议;对行政复议决定不服的，可以依法向人民法院提起行政诉讼。” 在司法实务中，以下情形属于行政复议前置: 1(治安管理处罚案件。治安管理处罚条例第三十九条规定:“被裁决受治安管理处罚的人或者被侵害人不服公安机关或者乡(镇)人民政府裁决的，在接到通知后五日内，可以向上一级公安机关提出申诉，由上一级公安机关在接到申诉后五日内作出裁决;不服上一级公安机关裁决的，可以在接到通知后五日内向当地人民法院提起诉讼。” 2(纳税争议案件。税收征收管理法第八十八条第一款规定:“纳税人、扣缴义务人、纳税担保人同税务机关在纳税上发生争议时，必须先依照税务机关的纳税决定缴纳或者解缴税款及滞纳金或者提供相应的担保，然后可以依法申请行政复议;对行政复议决定不服的，可以依法向人民法院起诉。”海关法第六十四条规定:“纳税义务人同海关发生纳税争议时，应当缴纳税款，并可以依法申请行政复议;对复议决定仍不服的，可以依法向人民法院提起诉讼。” 上述法律条文的语言结构为“可以申请复议;对复议决定不服的，可以起诉”。该模式属于行政复议前置的立法模式之一，不仅是实务上的通常见解，也可从法律体系本身以及法律条文变迁推断。例如，税收征收管理法第八十八条第二款规定:“当事人对税务机关的处罚决定、强制执行措施或者税收保全措施不服的，可以依法申请行政复议，也可以依法向人民法院起诉。”该款规定是典型的选择运用模式。如果税收征收管理法第八十八条第一款规定可作选择运用模式理解的话，那么立法机关无需在同一部法律中对救济条款使用不同的立法语言。obstacles, correcting misunderstandings, advocate good cadre style. 2, adhere to the scientific decision-making and democratic decision-making decision-making law. Correctly handle to ensure that government decrees and based on the actual creative work, giving full play to subjective initiative, put an end to implement the conference meeting, to document the implementation of documents etc. Improve the scientific and democratic decision-making mechanism, improve and implement the decision to solicit the views of experts, the public hearing system. Improve the important decision of risk assessment mechanism and legal review mechanism. 3, to promote team unity. Uphold and improve the system of annual party book talk heart to heart, mind and Party members, Party members to exchange each other not less than 2 times. The implementation of sound team democratic life system, consolidate and enhance the party's mass line educational practice will promote the achievement of the topic of democratic life, criticism and self-criticism normalization, a long-term. Adhere to the party on the basis of the principle of unity, enhance internal communication, strengthen internal supervision, self Sleep maintenance team collective image and authority. (three) to ensure the execution is not strong or disguised to resist government decrees issues. Individual Bureau leadership team members lack of learning political theory system, not from the objective reality, not with the party's interests above all the principles to deal with personal problems. In the specific work safety supervision in the execution is not strong, in the implementation of the decision to deploy the discount, make choices, engage in work, the implementation of the agreement, uncomfortable is not performed, open or disguised to resist, the lack of subject consciousness of the party organization, the lack of resist in society all kinds of bad habits and unwholesome tendencies of courage Gas and courage. Such as the liability insurance of safe production work, individual leaders that have someone arrested, and no funding, not in the global chess perspective to the countryside to carry out daily inspection, found none of my business acceptance of the resumption of production in an armchair, with a pen, indifferent. Corrective measures: (LED Leadership: Luo Mingjun, rectification time: before September 25th, insist for a long time) 1, to strengthen the sense of responsibility, work to solve the lack of decent occupation explain away, conduct problems. To establish the overall concept, eliminate departmentalism. Strict assessment and accountability, to solve the spiritual slack, nianqingpazhong, status quo, To establish and perfect the muddle along and other issues. Bureau staff conduct work regulations, standardize the behavior of personnel. 2, strengthen the responsibility system. One is the in-depth study and implement the "Hunan provincial Party and government leading cadres Interim Provisions on the work safety of a pair of > (Hunan Office issued 2013 No. 又如，治安管理处罚法(2006年3月1日起施行)第一百零二条规定:“被处罚人对治安管理处罚决定不服的，可以依法申请行政复议或者提起行政诉讼。”如果治安管理处罚条例第三十九条规定的是选择运用模式的话，那么立法机关在制定治安管理处罚法时仍可沿用治安管理处罚条例的语言结构。在法律界众所周知的事实是，治安管理处罚法第一百零二条改变了现行治安处罚案件复议前置的规定，赋予了当事人自主选择法律救济渠道的权利。 本案中，当事人对《工伤保险条例》第五十三条第(一)项是否规定复议前置，理解上存在分歧。该项条文规定:“有下列情形之一的，有关单位和个人可以依法申请行政复议;对复议决定不服的，可以依法提起行政诉讼:(一)申请工伤认定的职工或者其直系亲属、该职工所在单位对工伤认定结论不服的;„„”通过对行政复议与行政诉讼衔接立法模式的归纳总结，本院认为，《工伤保险条例》第五十三条第(一)项规定工伤认定案件适用复议前置，即行政复议为提起诉讼的必经程序。原告代理人认为工伤认定案件可选择复议或诉讼，没有法律依据。行政诉讼法第三十七条第二款规定:“法律、法规规定应当先向行政机关申请复议，对复议不服再向人民法院提起诉讼的，依照法律、法规的规定。”原告未申请行政复议程序径直提起行政诉讼，依法应予驳回。依照《最高人民法院关于执行〈中华人民共和国行政诉讼法〉若干问题的解释》第四十四条第一款第(七)项的规定，裁定如下: 驳回原告黄志的起诉。 裁定宣告后，当事人未提起上诉。 【评析】 本案所讼争的《工伤保险条例》第五十三条第(一)项条文以及其他法律法规与之相似条文，实务中一般是作为复议前置规定来理解的。但近年来，有学者和法官对此类条文是否为复议前置规定，提出与实务见解不同的新观点，[1]其中以蒋惠岭先生影响最大。 据笔者整理，行政复议前置最无争议的立法模式(即在条文中明确规定“应当先申请行政复议”)，目前可能只有《行政复议法》第三十条规定。亦即，如果依照新观点，现行复议前置的立法只有自然资源所有权或者使用权行政确认一项。这不但不符合司法实务的共识，也使现行复议前置大大缩水。然而，新观点的影响是不容忽视，如本案原告提供了《对工伤认定不服可直接提起行政诉讼》一文作为参考资料。为了使习以为常的实务共识具有很强的说服力，本案采取全面论证的方式阐述裁定理由。 单凭《工伤保险条例》第五十三条第(一)项条文本身，是无法推导出立法原意的，因为目前存在两种理解。本裁定首先归纳复议与诉讼选择运用的三种常见立法模式，表明讼争条文不在其中。当然，这还不够，因为依照新观点，讼争条文可以作为第四种模式。其次，本裁定列举了司法实务中复议前置的两种情形，即《治安管理处罚法》施行前的治安管理处罚案件，以及纳税争议案件。而对《治安管理处罚条例》、《税收征收管理法》相关条文的探析，则是寻求立法原意的关键所在。特别是通过《税收征收管理法》第八十八条第一款和第二款的比较，立法原意更为清晰。除了裁定理由所述意见外，《税收征收管理法》第八十八条第一款规定，行政相对人在申请行政复议前必须缴纳或者解缴税款及滞纳金或者提供相应的担保，也充分体现了该款属复议前置规定。如果该款作选择运用模式理解，就会导致行政相对人舍复议而取诉讼。这样一来，税法对纳税争议复议所设置的前提保障就形同虚设。 obstacles, correcting misunderstandings, advocate good cadre style. 2, adhere to the scientific decision-making and democratic decision-making decision-making law. Correctly handle to ensure that government decrees and based on the actual creative work, giving full play to subjective initiative, put an end to implement the conference meeting, to document the implementation of documents etc. Improve the scientific and democratic decision-making mechanism, improve and implement the decision to solicit the views of experts, the public hearing system. Improve the important decision of risk assessment mechanism and legal review mechanism. 3, to promote team unity. Uphold and improve the system of annual party book talk heart to heart, mind and Party members, Party members to exchange each other not less than 2 times. The implementation of sound team democratic life system, consolidate and enhance the party's mass line educational practice will promote the achievement of the topic of democratic life, criticism and self-criticism normalization, a long-term. Adhere to the party on the basis of the principle of unity, enhance internal communication, strengthen internal supervision, self Sleep maintenance team collective image and authority. (three) to ensure the execution is not strong or disguised to resist government decrees issues. Individual Bureau leadership team members lack of learning political theory system, not from the objective reality, not with the party's interests above all the principles to deal with personal problems. In the specific work safety supervision in the execution is not strong, in the implementation of the decision to deploy the discount, make choices, engage in work, the implementation of the agreement, uncomfortable is not performed, open or disguised to resist, the lack of subject consciousness of the party organization, the lack of resist in society all kinds of bad habits and unwholesome tendencies of courage Gas and courage. Such as the liability insurance of safe production work, individual leaders that have someone arrested, and no funding, not in the global chess perspective to the countryside to carry out daily inspection, found none of my business acceptance of the resumption of production in an armchair, with a pen, indifferent. Corrective measures: (LED Leadership: Luo Mingjun, rectification time: before September 25th, insist for a long time) 1, to strengthen the sense of responsibility, work to solve the lack of decent occupation explain away, conduct problems. To establish the overall concept, eliminate departmentalism. Strict assessment and accountability, to solve the spiritual slack, nianqingpazhong, status quo, To establish and perfect the muddle along and other issues. Bureau staff conduct work regulations, standardize the behavior of personnel. 2, strengthen the responsibility system. One is the in-depth study and implement the "Hunan provincial Party and government leading cadres Interim Provisions on the work safety of a pair of > (Hunan Office issued 2013 No. 通过对行政复议与行政诉讼衔接立法模式的归纳总结，《工伤保险条例》第五十三条第(一)项规定工伤认定案件适用复议前置的结论也就水到渠成。 本案具有很强的指导性，为今后审理类似案件提供了坚实而周密的法律论证资料。同时，本案“功夫在诗外”的论证风格，也拓展了法官解释法律的思路。 此外，本案还有立法语言研究价值。如通过比较复议与诉讼选择运用的立法例，可以发现随着法律的普及和公民法律意识的提高，立法语言从当初的不厌其烦的救济方式交代(第一种模式)到现在的不着一字(第三种模式)。因为，在今天的法治氛围下，行政相对人已经知道，除了法律规定复议前置外，行政行为只要可诉，就可在复议和诉讼中选择其一。当然，为使当事人和法官不致产生误解，原先规定复议前置、后改为选择运用的，以采取第二种模式为宜，如《治安管理处罚法》。 (评析人:思明法院李辉东) [1] 蒋惠岭:《“可以”复议 还“可以”起诉吗——漯河建行案对行政复议与行政诉讼衔接传统理解的挑战》，载《人民法院报》2005年8月8日;谢敏等:《对工伤认定不服可直接提起行政诉讼》，载《人民法院报》2005年5月9 obstacles, correcting misunderstandings, advocate good cadre style. 2, adhere to the scientific decision-making and democratic decision-making decision-making law. Correctly handle to ensure that government decrees and based on the actual creative work, giving full play to subjective initiative, put an end to implement the conference meeting, to document the implementation of documents etc. Improve the scientific and democratic decision-making mechanism, improve and implement the decision to solicit the views of experts, the public hearing system. Improve the important decision of risk assessment mechanism and legal review mechanism. 3, to promote team unity. Uphold and improve the system of annual party book talk heart to heart, mind and Party members, Party members to exchange each other not less than 2 times. The implementation of sound team democratic life system, consolidate and enhance the party's mass line educational practice will promote the achievement of the topic of democratic life, criticism and self-criticism normalization, a long-term. Adhere to the party on the basis of the principle of unity, enhance internal communication, strengthen internal supervision, self Sleep maintenance team collective image and authority. (three) to ensure the execution is not strong or disguised to resist government decrees issues. Individual Bureau leadership team members lack of learning political theory system, not from the objective reality, not with the party's interests above all the principles to deal with personal problems. In the specific work safety supervision in the execution is not strong, in the implementation of the decision to deploy the discount, make choices, engage in work, the implementation of the agreement, uncomfortable is not performed, open or disguised to resist, the lack of subject consciousness of the party organization, the lack of resist in society all kinds of bad habits and unwholesome tendencies of courage Gas and courage. Such as the liability insurance of safe production work, individual leaders that have someone arrested, and no funding, not in the global chess perspective to the countryside to carry out daily inspection, found none of my business acceptance of the resumption of production in an armchair, with a pen, indifferent. Corrective measures: (LED Leadership: Luo Mingjun, rectification time: before September 25th, insist for a long time) 1, to strengthen the sense of responsibility, work to solve the lack of decent occupation explain away, conduct problems. To establish the overall concept, eliminate departmentalism. Strict assessment and accountability, to solve the spiritual slack, nianqingpazhong, status quo, To establish and perfect the muddle along and other issues. Bureau staff conduct work regulations, standardize the behavior of personnel. 2, strengthen the responsibility system. One is the in-depth study and implement the "Hunan provincial Party and government leading cadres Interim Provisions on the work safety of a pair of > (Hunan Office issued 2013 No.