“民法典时代”行政法规创设民事制度的正当性及其限度

Justification and Limitation of Administrative Regulations Creating Civil System in the Era of Civil Code

《民法典》广泛认可行政法规对民事制度的创设,而《立法法》第8条规定的"民事基本制度"的内涵不够明确,造成行政法规创设民事制度的界限模糊。实践中,部分民事活动具有公法效果,交易安全需行政权加以保障,公有制经济与行政机关的关系特殊,这奠定了行政法规创设民事制度的正当性基础。当然,依《立法法》第65条,国务院的职权立法权被限定于行政管理事项。兼顾上述两方面需要,"民事基本制度"的解释应兼采"侵害保留学说",对与基本权利对应的民事权利的限制实行严格的法律保留,不涉及上述权利限制的民事基本制度则进行弹性化改造以允许行政法规有限介入,民事非基本制度的创设相对宽松,但也应受程序与内容两方面限制。

The Civil Code widely recognizes that administrative regulations regulate civil activities,and the extension of the civil basic system stipulated in Article 8 of the Legislation Law is not clear enough,resulting in the blurring of the boundaries of administrative regulations in the civil field.In practice,some civil activities have the effect of public law,the security of transactions needs to be protected by administrative power,and the relationship between the public economy and administrative agencies is special,which laid the foundation for the legitimacy of administrative regulations to adjust civil activities.Accordingly,the interpretation of the basic civil system should also adopt the doctrine of infringement reservations,and implement strict law reservations for the restrictions on civil rights corresponding to basic rights.The basic civil system that does not involve the restriction of the above rights should be reformed to allow limited intervention by administrative regulations.The setting of the non-civil basic system is relatively loose,but it should also be restricted by both procedures and content.