Правові форми публічного адміністрування в Україні.

Abstract

Дисертацію присвячено комплексному дослідженню правових форм публічного адміністрування в Україні. Розкрито сутність публічного адміністрування як категорії науки адміністративного права. Визначено концептуальні підходи в дослідженні правових форм діяльності владних суб’єктів адміністративного права. Охарактеризовано основні ознаки правової форми як інтегративної категорії науки адміністративного права. Уточнено методологічні підходи дослідження правових форм публічного адміністрування. Розглянуто елементи логіко-юридичної конструкції правової форми публічного адміністрування. Встановлено місце наукового поняття «правова форма публічного адміністрування» у терміносистемі науки адміністративного права. Розкрито систему та обґрунтовано основні підходи до класифікації правових форм публічного адміністрування. Визначено поняття правового акта публічного адміністрування, виявлено і охарактеризовано його різновиди, зокрема нормативно-правовий акт, індивідуальний акт і адміністративний договір, обґрунтовано їх атрибутивні та функціональні зв’язки у системі правових форм публічного адміністрування. Встановлено види і місце інституту «процедурна форма» в публічному адмініструванні, його зв’язок з іншими базовими поняттями адміністративно-процедурного права. Узагальнено зарубіжний досвід правової об’єктивації діяльності публічної адміністрації та запропоновано перспективи його використання в Україні. Визначено перспективи вдосконалення та практичні засади підвищення ефективності застосування правових форм публічного адміністрування в Україні. Диссертация посвящена комплексному исследованию правовых форм публичного администрирования в Украине. Раскрыта сущность публичного администрирования как категории науки административного права. Определены концептуальные подходы в исследовании правовых форм деятельности властных субъектов административного права. Охарактеризованы основные признаки правовой формы как интегративной категории науки административного права. Уточнены методологические подходы в исследовании правовых форм публичного администрирования. Рассмотрены элементы логико-юридической конструкции правовой формы публичного администрирования. Установлено место научного понятия «правовая форма публичного администрирования» в терминосистеме науки административного права. Раскрыто систему и определено основные подходы к классификации правовых форм публичного администрирования. Охарактеризовано понятие правового акта публичного администрирования, обнаружены и проанализированы его разновидности, в частности нормативно-правовой акт, индивидуальный акт и административный договор, обоснованы их атрибутивные и функциональные связи в системе правовых форм публичного администрирования. Установлены виды и место института «процедурная форма» в публичном администрировании, его связь с другими базовыми понятиями административно-процедурного права. Обобщен зарубежный опыт правовой объективации деятельности публичной администрации и предложены перспективы его использования в Украине. Определены перспективы совершенствования и практические основы повышения эффективности применения правовых форм публичного администрирования в Украине. The dissertation is focused on the comprehensive research of legal forms of public administration in Ukraine. The main features of public administration as a sphere of legal objectification have been characterized. The scope and content of the concept of “public administration” as a legal category have been defined. The author has analyzed the existing conceptual approaches in the study of legal forms of public administration and has pointed out their main shortcomings. The legal form has been considered as a complex category of legal science, which acquires integrative qualities at the sectoral level, which are revealed through the prism of its axiological, ontological and epistemological aspects of being. The methodology of research of legal forms of public administration has been presented by two blocks: theoretical and methodological, which should determine the guidelines and tasks of the research, and instrumental, which should reflect specific methods of their solution. It has been found out that the logical and legal construction of the legal form of public administration is represented by the elements that reflect its essential features and are in stable relationship, where the absence of one of the components makes impossible the regulatory influence of the will of the public administration subject and the ability to create legal consequences. Such elements of theoretical construction of the legal form of public administration are: legal force, scope of action, legal content, form of fixation, legal consequences and legal procedure. The legal form of public administration has been defined as an objectification of the expression of will of the authorized person to perform the functions of public administration, structured in accordance with the established legal procedure in administrative law, which causes legal consequences in material and procedural relations. These consequences arise in accordance with the scope, legal force and legal content of the authoritative enactment, determined by the competence of the subject of expression of will and the stage of the mechanism of administrative and legal regulation. It has been proved that the concept of “legal form of public administration” occupies one of the central places in the theory of administrative law and is related by logical connections with such basic categories as “functions of public administration”, “methods of public administration”, “functions of administrative law”, “methods of administrative law”, “subjects of public administration”. It has been substantiated that the scope of the concept of “legal form of public administration” includes all manifestations of public administration activity that cause direct legal consequences in public relations, which is the subject matter of administrative and legal regulation, and combines: regulatory acts, individual acts, administrative agreements, acts-actions, administrative procedures, management programs, automatic legal consequences, acts-plans, acts-expression of will. The identified empirical set of legal forms of public administration has been organized by using the classification method; and the author has offered to divide them into classes and subclasses within the natural and artificial types of classification. Specific features of interaction of material and procedural legal forms of public administration have been established. In particular, the author has emphasized that the legal procedure plays the role of internal form as an element of the structure of the material legal form of public administration. The legal act of public administration has been recognized as a generalizing concept for the whole set of expressions of will of those authorized to perform public authoritative and management functions of the subjects of administrative law. The author has proposed to include in the scope of the concept of a legal act of public administration: regulatory acts, individual acts, including legal acts of management and administrative acts, interpretative acts, administrative agreements, acts-action, acts-expression of will. The necessity of preserving the construction of a management legal act, its correlation with the concept of normative, individual and administrative acts has been substantiated. The author has emphasized on the peculiarities of the procedural form of public administration. It has been indicated that the administrative procedure can and should be perceived as an independent type of legal objectification of public administration activity in cases when the legislator does not link the normal course of activities to the implementation of the functions of public administration with the need to issue a legal act, but determines it as a result of the act-action or act- expression of will. The author has clarified the concept and features of a new type of procedural forms of public administration activity – automatic administrative procedure. The author has emphasized on the need to improve the provisions of perspective administrative, administrative and procedural legislation, taking into account the positive experience of EU Member States. A number of conceptual amendments to the drafts of administrative and procedural legislation has been offered, propositions to the structure of the future Administrative Code of Ukraine have been formed; and provisions on the concept and types of legal forms of public administration have been formulated.