清末民初行政诉讼法制中的“民告官”传统遗存

The “Min Gao Guan”Tradition and Its Heritage in the Administrative Litigation System of the Late Qing Dynasty and the Early Republic of China

在中国古代"为民父母行政"的传统行政法律文化中存在一个延宕千年的"民告官"传统。这一传统体现在"以上制下"的逐级申控制度、"从严治吏"的御史监察制度、"为民申冤"的直诉京控制度和"便民告官"的越诉特许制度等方面,其精神旨趣是廉政监督而非民权保障。"民告官"传统在清末民初近代行政诉讼法制滥觞和确立阶段仍然有不同程度的遗存。这种遗存可以从彼时行政诉讼审判机构的设立存废之争、具体制度设计和实际运行效果三个方面考察。未来中国行政诉讼法制的发展必须建立在对近代百年行政诉讼法制变迁充分省察的基础之上,必须认真对待和妥善处理"民告官"传统的影响。

In the traditional administrative legal culture characterized by ＂ administrative functioning as people＇s parents＂ in ancient China, the ＂Min Gao Guan＂ phenomena referring to laymen suing officials was an ever lasted tradition. Such tradition was embodied in many aspects such as ＂up - down＂ supervising and stepwise petitioning system, ＂severe governance of officials＂ by supervising censors, ＂laymen＇ s petition for justice＂ by a direct litigation channel to the central government, and the ＂Bian Min Gao Guan＂ system by overpassing and franchised appeals. These measures purport to supervise corruption rather than protect civil rights. This ＂Min Gao Guan＂ tradition still existed in the administrative litigation system of the late Qing Dy- nasty and the early Republic of China, which can be analyzed from three aspects of controversies over estab- lishment of trial courts for administrative litigation, the specific system design and the practical operation effects. The future development of Chinese administrative litigation should base on the last one hundred years＇ evolution of the administrative litigation, in which the ＂Min Gao Guan＂ tradition requires to be seriously con- sidered and properly coped with.