行政协议诉讼中行政机关原告资格的困境与路径选择

我国行政诉讼并未规定行政机关的原告资格,其主要原因在于现行《行政诉讼法》确立的单向构造、立法者仅承认行政机关提起民事诉讼以及学者对行政机关获得原告资格的质疑等现实困境。基于诉权平等理论以及行政协议的特殊性,应在行政协议诉讼中确立行政机关的原告资格。域外经验大致可分为以德国为代表的行政机关原告资格设置与以法国为代表的无行政机关原告资格设置两类。长远来看,我国应借鉴德国的经验,确立行政协议诉讼中行政机关的原告资格,把行政机关提起的协议诉讼纳入司法审查范围。同时,应通过程序设置、诉讼内涵扩充、实体权利保障、判决类型拓展等路径,构建行政协议双向诉讼制度,从而规范行政权的行使,促进行政协议争议的实质解决。

The administrative litigation in China does not stipulate the plaintiff qualifications of administrative organs,as a result of the one-way structure estab-lished by the current Administrative Procedural Law,the legislator's recognition of the civil litigation of administrative organs,and the scholars'query on the plaintiff qualifications of administrative organs.According to the theory of equal right of ac-tion and the particularity of administrative contract,it is essential to admit the plaintiff qualification of administrative organs in administrative contract litigation.The experience of foreign civil law countries can be roughly divided into two catego-ries;the plaintiff qualification of administrative organs represented by Germany and the plaintiff qualification without administrative organs represented by France.In the long run,it is essential to learn from the experience of Germany,establish the plaintiff qualification of administrative organs in administrative contract litigation,and incorporate the contract litigation brought by administrative organs into the scope of judicial review.At the same time,it is necessary to construct a two-way liti-gation system of administrative contract by setting up procedures,extending the connotation of litigation,protecting substantive rights and expanding the types of judgments,so as to standardize the exercise of administrative power and promote the substantive settlement of administrative contract disputes.