试论我国民事诉讼和解制度之完善
叶知年
[摘 要]在诉讼和解性质与效力问题上,应以德国的试行和解制度与美国的诉讼和解制度为代表,作为构建我国民事诉讼和解制度的借鉴,进而结合我国司法实践的具体情况,以法院调解制度改革、《民事诉讼法》修改为契机,以诉讼和解与法院调解之间存在的天然联系为突破,将诉讼和解与我国民事诉讼的发展趋势结合起来,选择适合我国国情的民事诉讼和解理论;在我国未来民事诉讼和解制度的构建上,应明确规定诉讼和解的构成要件、程序上和实体上的特别要求、诉讼和解的效力及救济等问题。
[关键词] 民事诉讼 调解 和解 完善
基于当事人对民商事纠纷本身享有自主解决的权利和对诉讼标的自由处分的权利,各国相当尊重当事人在民事诉讼中行使处分权所达成的和解,一般在民事诉讼法中都有关于诉讼和解的规定,诉讼和解在民事诉讼中的适用也是相当广泛而有效的。与此相对的,是我国民事诉讼中诉讼和解的缺位。我国现行《民事诉讼法》第51条规定“双方当事人可以自行和解” ,这似乎是赋予了诉讼当事人和解的权利。但是,当当事人想要行使这一权利时,却不得不面对一系列的问题:和解的条件、程序和效力等必要的相关规范都无法从现行的《民事诉讼法》中找到,当事人行使这一权利缺乏可靠的保障。诉讼和解在中国成为了事实上的摆设,许多人甚至并不知道在法院调解之外还有和解这一说。本文拟就诉讼和解制度作一比较研究,以期对建立和完善我国民事诉讼和解制度有所裨益。
一、诉讼和解的性质
(一)各国关于诉讼和解性质的学说
诉讼和解又称诉讼上的和解、裁判上的和解,是指双方当事人把他们对诉讼请求的主张相互让步的结果在诉讼上进行一致陈述的行为。在国外,广义上的诉讼和解既包括在诉讼程序中进行的和解,也包括诉讼提起前进行的“起诉前的和解”。一般认为,诉讼和解是双方当事人间达成的合意。在外国传统的民事诉讼中,受司法消极主义理论影响,法官对当事人达成诉讼上的和解一般持比较消极的态度,主要是为当事人提供一种对话、协商的渠道,而不是主动地向当事人提议和解或者积极地促成当事人间的和解。第二次世界大战以后,各国的诉讼数量不断增加,新的诉讼类型不断出现。为了提高诉讼效率,各国在本国的民事诉讼程序改革中,开始注重诉讼和解,法官在诉讼和解中扮演的角色也趋向积极。
对于诉讼和解的性质,学界存有许多争议。主要有以下几种观点:
1、私法行为说。这种学说认为诉讼和解是纯粹私法上的法律行为,在本质上与诉讼外和解相同,经由诉讼和解达成的和解协议属于私法上的和解契约,肯定了诉讼和解与私法上和解契约的连续性。德国的埃乌斯(Eccius)、柯勒(Kohle)、罗森贝克(Rosenberg)以及日本的河本喜与之等均持此说,指出诉讼和解之所以发生诉讼法上的效果,即发生终止诉讼的法律效果,是因为关于诉讼标的的争执已经结束,本案诉讼已缺乏诉讼的对象,故而赋予和解行为与确定判决同样的法律效果。各国法律规定应将和解协议记载于笔录之中,就是为了对和解协议加以明证。 美国民事诉讼法学界亦多此说,但与德日学者不同,他们不认为和解协议可以直接终结诉讼。
2、诉讼行为说。这种学说是通过一个简单的逻辑推理所得出的,即按照产生何种法律上的效果,行为即需要具备何种法律规定的要件的理论,得出了既然和解产生诉讼法上的法律效果,则表明和解具备诉讼上的要件,无疑就是诉讼行为的结论。德国的保罗(Palu)、比洛夫(Biilow)和日本的雉本朗造等持此说,认为诉讼和解是按照诉讼法规范来评价诉讼行为,是双方当事人通过互让而使诉讼终结的合意,或者说是关于终结诉讼的合同诉讼行为。 其中,前者又称合意说,后者又称合同诉讼行为说。
3、两行为并存说。这种学说认为诉讼和解一方面产生实体法上的效果,另一方面也产生诉讼法上的效果。那么,根据产生何种法律上的效果,就必须是何种法律性质的行为的逻辑反推,产生两种并存的法律效果的法律行为也一定是两种相应的法律行为的并存。诉讼和解从表面上看来尽管只存在一个行为,但是在法律上,却存在着作为私法行为的和解与作为诉讼行为的终结诉讼的合意两个行为,并且,这两个行为是并存的。德国的赫尔维希(Hellwig)和日本的山田博士即持此说,主张诉讼和解是私法上的和解契约与终结诉讼合意的诉讼行为两者的并存。在该学说内部,针对诉讼和解中的私法行为与诉讼行为间是否存在联系,又分为不同的派别。
4、两行为竞合说。这种学说认为诉讼和解无论从现象或是法律上看,均只是一个行为,但这一个行为却是一个具有双重属性的特殊行为,既具有在当事人之间存在的私法上的和解契约的性质,又具备在当事人之间以及当事人和法院之间存在的诉讼合意的性质。而且,这一学说完全肯定了在诉讼和解的私法性质与诉讼性质之间存在交流与沟通。德国的施勒克(Schnke)、尼克逊(Nikisch)、莱特(Lent)和日本的加藤正治等支持此说,把诉讼和解看成是同一行为中含两种行为的属性。目前,这一学说是诉讼法学界的主流观点。
(二)我国对诉讼和解性质的选择
私法行为说强调诉讼和解乃是一种私法上的和解,诉讼和解达成的和解协议是私法契约。这一观点是建立在契约法的高度发达的基础上的,这也是私法行为说为英美法系国家广泛采用而被大陆法系国家弃如敝履的重要原因。我国的法律制度,清末师德、民国师日,新中国前期取法苏联,改革后又以德、日及我国台湾地区法律为重点研究学习对象,而合同法在我国的发展亦不过是十数年。显然,私法行为说并不适合我国国情。
诉讼行为说只把诉讼和解当做当事人间达成的终结诉讼的合意,而没有看到,在这一合意达成过程中,当事人对自身实体权利的处分以及和解成立后和解契约对当事人的约束力。这样的性质理论明显不适合概括诉讼和解这一法律行为的全貌。
两行为并存说内部,对于作为私法行为的和解与作为诉讼行为的合意这两者是否有联系存在着分歧。主流观点认为这两者是分别独立存在并且各自独立的发挥作用的,但也有部分学者认为两者间存在着不可分割的联系。前一种观点割裂了诉讼法与实体法之间的联系,难以让人信服;而后一观点固然坚持了诉讼法与实体法之间的天然联系,但在一个法律事实中存在两个交错不可分的法律行为,始终令人费解。
两行为竞合说与并存说的不同之处就在于,在诉讼和解私法方面和诉讼法方面的互通和交流这一点上,竞合说内部不存在有分歧,也就是说,竞合说坚持认为,如果诉讼和解存在私法上无效的原因,那么,在诉讼法上也必然导致该行为无效。而且,竞合说所提出的一个行为两种性质的说法,令人更易于接受;恰如人同时具有自然属性和社会属性、商品亦有使用价值与价值之两重性。
事实上,无论何种学说,均不能很好地解释在各国的司法实践中出现的关于诉讼和解效力的争议,而且,即使是在各个学说的内部也都存在着分歧。更值得注意的是,无论从何种学说出发,经过适当的修正,都可以导出相同的结论。这样一来,关于诉讼和解性质的争论可以说仅仅是一种试图将其在理论上进行说明的技巧性的论争。因此,在构建我国的诉讼和解制度时,不应太过拘泥于现有的关于诉讼和解性质的理论,更应该考虑的是目前我国司法实践对于这种制度的需要,即现实为什么需要这一制度,现实需要这一制度为何。毕竟,法律之所以被制定,就是为了满足人类的需要。而且,在法律发展史上,各种成文的法律概念都是在对现实存在的法律制度进行提炼的基础上产生的;而世界又是不断发展的,现在我们所提及的法律术语的含义与其诞生之初相比,虽然已经被大大丰富了,但是,面对丰富的法律实践,法学理论仍然常常心有余而力不足。当然,就纯粹的理论探讨而言,笔者更倾向于两种性质竞合说。
诉讼本身,就不是单纯的由诉讼法便可以完成的活动,事实上,诉讼即是实体法与诉讼法共同作用的“场”。张卫平教授曾经提到:诉讼法学在研究上将诉讼作为自己的研究对象时,在研究方法上也有必要从实体法和诉讼法两者的相互关系来把握诉讼现象。提倡实体法和诉讼法对立的二元观时,更要追求自然科学的研究方法。在现代法治体系中,形成了实体法和诉讼法两种不同的法律体系,因此,即使是一个经验事实,也可以从实体法和诉讼法这两个不同的方面作价值上的判断。 具体就诉讼和解来说,正是民事诉讼法规定了当事人可以在民事诉讼中进行和解,和解是当事人的诉讼权利之一;同时,民事诉讼法还以处分原则为基本原则之一,赋予当事人处分自己实体权利和诉讼权利的权利,和解才得以在诉讼中进行。因此,当诉讼和解实际完成之时,便自然地具备了诉讼行为的性质。而民事诉讼中的处分原则又是民事实体法领域内私法自治精神在诉讼领域的体现,且当事人在诉讼和解中彼此让步所处分的乃是自己的民事利益,和解协议内容的合法与否应当以实体法为审查依据,这又使诉讼和解具备了一种实体行为的性质。在某种意义上,诉讼和解相当于一个民事契约,当事人之间的和解协议实质上就是确定一个契约来解决当事人之间的争议;与一般民事契约不同的是,和解契约是在诉讼中达成的,并由法院见证,是诉讼契约中的一种。
二、诉讼和解的效力
(一)各国关于诉讼和解效力的学说
诉讼和解的效力,即当事人之间的诉讼和解协议成立后会产生什么样的法律效果。这里的“和解协议成立”是指和解协议由当事人各方认可的、且经过了法定程序而生效。理论界对于诉讼和解效力的争议主要在于,诉讼和解是否具有既判力,即是否具有与确定判决相同的效力,而其中心问题又在于诉讼和解在实体法上的瑕疵是否影响其诉讼上的效果。关于该问题的学说可以分为三种:
1、既判力肯定说。这种学说认为,诉讼和解是判决的替代,则确定无疑地拥有既判力,除非诉讼和解中存在再审事由,才可依再审程序推翻原和解的效力;除此之外,当事人不得以和解存在实体法上的瑕疵为由提出主张。以日本的兼子一为代表的学者持此说。
2、既判力否定说。这种学说认为,确定判决具有既判力,即是说判决一经确定,当事人就不得以已裁判的诉讼标的再行起诉或提出与判决相矛盾的主张,法院也不能再作出与之相矛盾的判断。因此,既判力实质上是一种国家权力,具有公权性质,而以诉讼和解的当事人之间私法上和解行为的性质而言,不可能产生既判力。因此,当事人当然可以就诉讼和解实体法上的无效及撤销原因提出主张。德国的罗森贝克(Rosenberg)、尼克逊(Nikisch)、赫尔维希(Hellwig)和日本的新堂幸司等学者肯定此说。
3、限制的既判力说(折衷说)。这种学说的主要观点在于,只要诉讼和解中不存在实体法上的无效及撤销原因,该和解就具有既判力;同时允许当事人就诉讼和解中实体法上的无效及撤销原因提出主张。主要有日本的菊井维大等学者持此说。
在具体的司法实践中,大陆法系国家与英美法系国家对于诉讼和解效力的规定多有不同。大陆法系国家的诉讼和解制度大都规定,和解一旦成立,即具有与确定判决同等的效力。也就是说,诉讼和解成立后,诉讼终结,当事人间的权利义务得以确定、创设或变更;第一审达成的和解,当事人不得上诉,上诉审中达成和解协议的,原审判决自然失效;并且,有的国家也赋予和解协议以可强制执行力,在一方不履行和解协议的情形下,另一方可以据此向法院申请强制执行。
英美法系国家的制度则略有不同,正在进行的诉讼程序并不因当事人间达成的和解契约而自动终结,终结诉讼一般有两种方式:一是撤诉,撤诉后原告是否能够再次起诉取决于和解契约的约定;二是“合意判决”,即将当事人间达成的和解条件记录于法院裁决之上,形成“合意判决”,合意判决与一般判决一样产生结束诉讼的效力,并且具有既判力和强制执行力。
(二)我国对诉讼和解效力的选择
既然诉讼和解兼具两种性质,那么其效力当然也同时体现于诉讼法和实体法上。在诉讼和解的效力问题上,我们赞同限制的既判力说。这一学说主要是从既判力作用的两个方面入手的。一般认为,既判力的作用可以分为两个方面,一方面作用在于禁止当事人提出与判决内容相矛盾的主张,另一作用则是不允许当事人对判决于意思及陈述上存在的实体法瑕疵进行攻击。在判决的情形下,既判力的作用主要体现于前者,后者通常寓于前者之中。但是,在诉讼和解的情形下,由于关系到当事人的意思与陈述,后一作用也浮出水面。在考虑诉讼和解的既判力问题时,首先应当注意到,既然已经选择了两种性质竞合说作为我国诉讼和解制度的基础理论,那么,出于允许当事人对实体法上的瑕疵提出主张的考虑,着眼于既判力的后一作用,就应当否定诉讼和解的既判力;但是,在诉讼和解中,既判力前一方面的作用仍然存在,如果完全否定了它的既判力,就无法阻止当事人就原诉讼标的再行起诉,法院也不得不再次审理,这种情形非但不能减轻法院和当事人的诉累,而且不利于鼓励当事人进行诉讼和解,无疑是不当的。所以,对原告的这种再诉或者主张必须予以遮断 ,即还应当对既判力的前一作用给予承认。简言之,就是在不存在实体法上无效及撤销原因的限度内,应当承认既判力。这样,诉讼和解一旦成立生效,便与确定判决具有同等效力,可以终结诉讼,并且阻止当事人就同一标的再行起诉;同时也可救济存在有实体法上无效及撤销原因的诉讼和解。
限制的既判力说通过对既判力作用的不同侧面进行区分,使得诉讼和解的当事人可以因实体法上的瑕疵获得救济,与和解的性质理论相衔接;又不会导致当事人滥用权利,就原诉讼标的再行起诉、增加法院压力,不失为我国民事诉讼和解制度构建在理论上的恰当选择。由此引出的另一个问题是,当事人该如何就实体法上无效及撤销原因提出主张?是另行起诉还是继续旧诉讼?我们建议,我国在制度构建时选择继续旧诉讼,即由异议当事人向法院提出申请确认诉讼和解有效与否,和解有效则法院宣告诉讼终结;和解无效,则继续原有的诉讼程序。如此,该诉讼中原有的诉讼状态能够原封不动的继续进行,可以减少诉讼成本;而且,原法官较之新案法官能更好地审查和解是否无效。
三、诉讼和解制度的具体程序设置
(一)德国的试行和解制度
1、诉讼和解的构成要件。主要包括:(1)和解必须在某个德国法院前订立,主要是诉讼法院,也可以是任何其他的以任意方式处理和解标的地普通法院。(2)应当是在已诉讼系属程序中订立和解,但在其他合适程序(如独立的证据程序、批准诉讼费用救助的程序以及和解程序)也可进行。在程序结束发生既判力之后不再可能订立诉讼和解。(3)诉讼和解的订立人是诉讼的双方当事人,第三人也可以加入诉讼和解。(4)和解标的是本案诉讼标的的全部或部分,也可以涉及与本诉讼没有关系的争点。这使得从整体上澄清双方当事人之间的法律关系成为可能。(5)诉讼和解的内容一定是双方当事人互相让步的结果,即使是相当小范围内的让步。
2、诉讼和解满足诉讼行为有效要件的特别要求。它包括:(1)和解的形式是在法院前的口头表示,在法院系属的程序范围内及其记录范围内,后者为有效性所需。记载了诉讼和解的诉讼记录必须向参与人宣读、出示或播放并由其同意,否则诉讼和解无效。(2)诉讼代理人有权订立和解。(3)法院对以和解方式结束的权利争议是否有管辖权和法院职务任命是否合法皆不影响诉讼和解的效力。
3、诉讼和解适合实体法的有效要件。即:(1)如果实体法对和解内容规定了形式,则该形式被诉讼记录代替。(2)双方当事人必须具有和解能力,即必须有权对诉讼标的订立和解。(3)如果和解标的是一项处分,则作处分的和解当事人必须具有处分权限。
4、诉讼和解的效力。诉讼和解首先是一个诉讼行为,它的效力当然首先表现于诉讼领域。在和解充分有效的情形下,权利争议结束,还没有发生既判力的判决也被消灭。如果和解存在可执行的内容,则具有强制执行力;但这并不意味着它对和解案件发生实质既判力的确认,它只是判决的代替。而诉讼和解在实体法上的效力,通常只有在和解规定了双方当事人的实体法律关系(有时也包括第三人的实体法律关系)时才发生。
5、诉讼和解的无效。基于诉讼和解的双重性质,诉讼法上的原因和实体法的原因都可导致和解的无效。如果实体法方面有自始无效的原因,则除实体法效力外,和解的诉讼法效力也被取消;如果诉讼法方面有无效的原因,则和解的诉讼效力不发生(即不发生诉讼终结),而实体方面是否无效,则属于个别情形,纯粹的实体法和解或可依《民法典》第779条保持。
7、诉讼和解的救济。对诉讼和解无效性的裁判是在旧诉讼中进行的,即诉讼应当依照认为诉讼和解无效的一方当事人的申请而继续;若在继续的旧诉讼中可能证实和解有效,则诉讼终结。此种情况类似于对诉之撤回的有效性有争议后又由法院在相应的审查后肯定其有效性的状态。如果法院认为和解无效,则可对之通过中间判决或者在对诉作出的终局裁判的理由中作出裁判;如果法院认为和解有效,则应通过终局判决(诉讼判决)确认权利争议已经通过诉讼和解终结。
(二)美国的诉讼和解制度
PUBLIC FINANCE ORDINANCE ——附加英文版
Hong Kong
PUBLIC FINANCE ORDINANCE
(CHAPTER 2)
ARRANGEMENT OF SECTIONS
ion
I PRELIMINARY
hort title
nterpretation
he general revenue
harges on the general revenue
II THE ESTIMATES OF REVENUE AND EXPENDITURE, AND
APPROPRIATION
nnual estimates
pproval of estimates of expenditure and appropriation
uthorization of expenditure in advance of appropriation
hanges to the approved estimates of expenditure
upplementary Appropriation
III CONTROL AND MANAGEMENT
General powers and duties of the Financial Secretary
Power to make regulations and give directions, etc.
Controlling officers.
Controlling officers to obey regulations and directions, etc.
Authority of controlling officers to incur expenditure
Further authority of controlling officers in respect of urgent
nditure
IV RECEIPT, PAYMENT AND CUSTODY OF PUBLIC MONEYS
Duties of Director of Accounting Services
Prompt collection of moneys
Payment of public moneys
Payment of certain moneys to be authorized by warrant
Recoverable advances
Advances to meet urgent need for payment
Imprests
Deposits
Donations and grants
Banking
Investment of moneys
Borrowing powers and loans
Guarantees
Establishment of funds
Special suspense accounts
Appropriations and warrants to lapse at close of financial year
V SURCHARGE
Power to surcharge
Notification of surcharge and right of appeal
Appeal against surcharge
Withdrawal of surcharge
Collection of surcharge
Surcharge in respect of deceased persons
VI MISCELLANEOUS
Abandonment of claims, etc. and write-off of public moneys and
stores
Disposal of serviceable stores, etc.
Power of Governor to give directions
Director of Accounting Services may give certain directions, etc.
to
ic officers in receipt of certain moneys
Trusts
Transitional
Effect of dissolution of Legislative Council
t Schedule. Funds
nd Schedule. Special Suspense Accounts
Whole document
rovide for the control and management of the public finances of
Hong
and for incidental and connected purposes.
pril 1983] L. N. 109 of 1983
PART I PRELIMINARY
hort title
Ordinance may be cited as the Public Finance Ordinance.
nterpretation
his Ordinance, unless the context otherwise requires--
ropriation Bill" and "Appropriation Ordinance" means a
Bill or
nance, as the case may be, which provides for appropriation from
the
ral revenue in respect of the approved estimates of expenditure
on the
ices of the Government for a financial year;
roved estimates of expenditure" means the estimates of
expenditure
ed to be approved under section 6;
trolling officer" in relation to a head or subhead means the
officer
gnated as controlling officer of that head or subhead under
section
ector of Audit" means the Director of Audit appointed under
section 3
he Audit Ordinance (Cap. 122);
ctment" includes an imperial enactment;
enditure" includes expenditure on the services of the
Government
ired to be met under any enactment;
ance Committee" means the Finance Committee of the Legislative
Council
blished under the Standing Orders of the Legislative Council;
eral revenue" means moneys which under this Ordinance or any
other
tment are to be paid into or to form part of the general revenue;
d" means a head of expenditure;
lic moneys" means--
the general revenue;
any moneys which are accounted for in the books or records of
account
he Director of Accounting Services; and (Replaced 11 of 1990 s.
2)
any other moneys which the Governor may declare in writing
to be
ic moneys for the purposes of this Ordinance;
head" means a subhead of expenditure;
plementary Appropriation Bill" and "Supplementary
Appropriation
nance" means a Bill or Ordinance, as the case may be, which
provides
appropriation from the general revenue in supplementation
of the
opriation already made by an Appropriation Ordinance.
he general revenue
Except where otherwise provided by or under this Ordinance
or any
r enactment any moneys raised or received for the purposes
of the
rnment shall form part of the general revenue.
Any refund or drawback may be made from the general
revenue in
rdance with regulations made under section 11. (Replaced 8 of 1984
s.
For the avoidance of doubt it is hereby declared that the
reference in
ection (1) to moneys raised or received for the purposes
of the
rnment does not include moneys held on trust.
harges on the general revenue
xpenditure shall be charged on the general revenue except as
provided
r under this Ordinance or any other enactment.
PART II THE ESTIMATES OF REVENUE AND EXPENDITURE, AND APPROPRIA-
TION
nnual estimates
The Financial Secretary shall cause to be prepared in each
financial
estimates of the revenue and expenditure of the Government for
the
following financial year, and shall cause such estimates to be
laid
re the Legislative Council before or as soon as practicable after
the
encement of the financial year to which they relate.
Subject to subsection (3), the estimates of revenue and
expenditure
l be in such form as the Financial Secretary may from time to
time
ct.
The estimates of expenditure shall--
classify expenditure under heads and subheads with the ambit of
each
described;
in respect of each head show the estimated total
expenditure, the
ision sought in respect of each subhead, the establishment of
posts
any), and the limit (if any) to the commitments which may be
entered
in respect of expenditure which is not annually recurrent; and
specify the controlling officer designated in respect of each
head and
ead under section 12.
Where there is a requirement under any enactment that
expenditure be
from the general revenue, provision for such expenditure
shall be
uded in the estimates of expenditure for the purposes of this
Part,
without prejudice to the validity or effect of any such
requirement.
pproval of estimates of expenditure and appropriation
The heads contained in the estimates of expenditure for a
financial
shall be included in an Appropriation Bill which shall be
introduced
the Legislative Council at the same time as the estimates.
Upon the enactment of the Appropriation Ordinance the
estimates of
nditure for the financial year to which the Ordinance relates
shall be
ed to be approved to the extent that they are provided for in
the
nance and shall have effect from the first day of such financial
year.
Expenditure for the financial year on the services of the
Government
l, subject to this Ordinance, be arranged in accordance with the
heads
subheads and be limited by the provision in each subhead shown
in the
mates of expenditure as approved or as may subsequently be
changed
time to time in accordance with section 8.
uthorization of expenditure in advance of appropriation
The Legislative Council may, in advance of an Appropriation
Ordinance,
esolution authorize expenditure for the services of the
Government in
ect of a financial year to be charged on the general
revenue, in
rdance with this Ordinance and subject to such
limitations and
itions as may be specified in the resolution.
Expenditure charged on the general revenue pursuant to a
resolution
r this section shall be arranged in accordance with the
heads and
eads shown in the estimates of expenditure laid under section
5 and
provisions of this Ordinance shall, for the purposes
of this
ection and subject to such conditions and limitations as
may be
ified in the resolution, apply to such estimates as though they
were
approved estimates of expenditure.
Expenditure charged on the general revenue pursuant to a
resolution
r this section shall be set off against the amounts
respectively
ided in the Appropriation Ordinance upon the same
coming into
ation.
hanges to the approved estimates of expenditure
Subject to this section, no changes shall be made to the
approved
mates of expenditure except with the approval of the Finance
Committee
a proposal of the Financial Secretary.
Without limiting the generality of subsection (1) such
changes may
ide for all or any of the following matters--
the creation of new heads or subheads;
supplementary provision in approved or new subheads;
variations in the establishments of posts;
increases in the limit to the commitments which may be entered
into in
ect of expenditure which is not annually recurrent.
The Finance Committee may delegate to the Financial
Secretary the
r to approve changes subject to such conditions,
exceptions and
tations as are specified in the delegation.
The Financial Secretary, where a delegation by the Finance
Committee
r subsection (3) so provides, and subject to such
conditions,
ptions and limitations as are specified in the delegation, may
further
gate his power to approve changes to any public officer.
A delegation to any public officer under subsection (4)
shall be
ect to such further conditions, exceptions and limitations
as the
ncial Secretary may specify.
Nothing in subsection (1) shall be construed as
limiting or
cting--
the power of the Governor to make any proposal, or allow or direct
any
osal to be made, to the Legislative Council, the object or effect
of
h is to require a change to the approved estimates of expenditure;
or
a requirement under any enactment that expenditure be met
from the
ral revenue.
The Financial Secretary shall cause such changes to be made
to the
oved estimates of expenditure as are necessary in respect of any--
approval given under subsection (1), (3) or (4);
expenditure pursuant to a proposal referred to in subsection (6)
(a);
requirement referred to in subsection (6) (b) not otherwise
provided
by approval under this section.
The Financial Secretary shall at the end of each quarter
of the
ncial year or as soon as practicable thereafter--
report to the Finance Committee changes made to the approved
estimates
xpenditure in that quarter upon approval by him or by any
public
cer pursuant to a delegation under section (3) or (4), as the case
may
and
table in the Legislative Council a summary of all changes made
to the
oved estimates of expenditure in that quarter under this section.
Without prejudice to section 9, expenditure in respect of
which a
ge to the approved estimates is made under this section
shall be
ged on the general revenue notwithstanding that there has
been no
opriation in respect thereof by an Appropriation Ordinance.
upplementary Appropriation
t the close of account for any financial year it is
found that
nditure charged to any head is in excess of the sum appropriated
for
head by an Appropriation Ordinance, the excess shall be included
in a
lementary Appropriation Bill which shall be introduced
into the
slative Council as soon as practicable after the close
of the
ncial year to which the excess expenditure relates.
PART III CONTROL AND MANAGEMENT
General powers and duties of the Financial Secretary
Financial Secretary shall, subject to this Ordinance and any
other
tment, have the management of the finances of the Government and
the
rvision, control and direction of all matters relating
to the
ncial affairs of the Government.
Power to make regulations and give directions, etc.
Without prejudice to any other provision of this
Ordinance, the
ncial Secretary may make such administrative regulations and give
such
nistrative directions and instructions not inconsistent
with this
nance as may appear to him to be necessary or expedient for the
better
ying out of the provisions and purposes of this Ordinance and for
the
ty, economy and advantage of public moneys and Government
property.
Any regulations made or directions and instructions given
by the
rnor or by any person authorized by him, for purposes similar to
those
espect of which regulations, directions and instructions may be
made
iven under subsection (1), and which are in force at the
commencement
his Ordinance, shall, in so far as they are not inconsistent with
this
nance, remain in force and shall be deemed for all purposes to
have
made or given under this section and to be liable to revocation
or
dment hereunder.
Controlling officers
Estimates of expenditure laid before the Legislative Council
shall
gnate a controlling officer in respect of each head and subhead.
Subject to section 14 (5), a controlling officer shall be
responsible
accountable for all expenditure from any head or subhead for which
he
he controlling officer, and for all public moneys and
Government
erty in respect of the department or service for
which he is
onsible.
Controlling officers to obey regulations and directions, etc.
y controlling officer shall obey all regulations made and
directions
nstructions given by the Financial Secretary under section
11 and
l, if so required, account to the Financial Secretary
for the
ormance of his duties as controlling officer.
Authority of controlling officers to incur expenditure
Subject to any regulations made or directions or instructions
given by
Financial Secretary under section 11 and to any reservation
made by
Financial Secretary under subsection (3), a controlling officer
may,
accordance with this Ordinance, incur expenditure and
authorize
nditure to be incurred against any provision shown in any subhead
for
h he is the controlling officer.
No expenditure shall be incurred against any provision shown
in any
ead except by or under the authority of the controlling officer.
The Financial Secretary may, in writing, reserve the whole or any
part
ny provision shown in any subhead and for so long as such
reservation
ins in force no expenditure shall be incurred against the
provision
rved.
A controlling officer may, in respect of any subhead for which
he is
controlling officer, by allocation warrant signed by him or
by a
ic officer authorized generally or specially by him,
authorize any
r controlling officer to incur expenditure or authorize
expenditure to
ncurred against any provision shown in that subhead--(Added 8 of
1984
)
for any purpose within the ambit of that subhead; and
in accordance with the terms of the allocation warrant.
The controlling officer to whom an allocation warrant is issued
under
ection (4) shall be responsible and accountable for any
expenditure
rred under the warrant as if he were the controlling
officer
gnated in respect thereof under section 12.
Further authority of controlling officers in respect
of urgent
nditure
where an urgent need has arisen for expenditure to be incurred
which--
requires a change to the approved estimates of expenditure in
respect
atters referred to in section 8 (2) (b) or (d); and
in the opinion of a controlling officer cannot be deferred until
the
ssary change is made in accordance with section 8 without
serious
iment to the public interest, the controlling officer may,
on his
onal responsibility, incur the expenditure in anticipation
of such
ge.
As soon as practicable after incurring expenditure under
subsection
the controlling officer shall report the matter to the
Financial
etary for the purpose of having the necessary change made
to the
oved estimates of expenditure.
Where the necessary change to the approved estimates of
expenditure is
made in accordance with section 8, the expenditure incurred shall
not
charged on the general revenue but shall remain the
personal
onsibility of the controlling officer who incurred the
expenditure.
PART IV RECEIPT, PAYMENT AND CUSTODY OF PUBLIC MONEYS
Duties of Director of Accounting Services
The Director of Accounting Services shall be responsible
for the
ilation and supervision of the accounts of the Government,
for the
gement of accounting operations and procedures, and for ensuring
that
regulations directions or instructions made or given
under this
nance relating thereto and in respect of the safe custody of
public
ys and its accounting are complied with.
Without prejudice to the generality of his duties under
subsection (1)
the powers conferred on the Financial Secretary by section
11 the
ctor of Accounting Services shall--
ensure that adequate arrangements are made for bringing
promptly and
erly to account all public moneys received and paid by the
Government;
pay such sums from public moneys as he is authorized to pay under
this
nance or any other enactment;
ensure, in so far as is practicable, that adequate
arrangements are
for the safe custody of public moneys; and
bring to the notice of the Financial Secretary and the
Director of
t, in writing, any material defect in departmental control of
revenue,
nditure, cash, stamps, securities, stores and other
Government
erty which may come to his notice and any persistent
breaches of
lations, directions or instructions made or given
under this
nance.
Subject to the provisions of any enactment, in the exercise
of his
es the Director of Accounting Services shall be entitled to
inspect
offices and shall have access to all records, books,
vouchers
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