论行政行为概念的嬗变

Transmutation of the Concept of Administrative Act

学界通说认为行政行为概念是指国家行政机关依法实施行政管理,直接或间接产生法律效果的行为。行政行为概念通说的首要价值在于维护社会秩序,但是其体系混乱、确定性与灵活性不足。随着市场经济体制的建立以及在此基础上的现代行政对民主性、科学性的日益关注,服务行政逐渐在我国的法律中开始出现,法的人权保障首要价值逐渐攀升到法的价值的顶端。行政行为概念通说价值上不符合法的价值位阶,内容上不能涵盖服务行政,在形式上不能解释服务行政的方式,因此行政行为概念应该根据中国司法实践作扩大解释。扩大后的行政行为概念将人权保障作为其首要价值,内容包括行政法律行为、行政事实行为、准行政(法律)行为,从而形成一个具有中国特色的行政行为体系。按照法的价值位阶和我国的司法实践要求,确定的行政行为需要对我国行政行为成立理论进行修正,从而实现行政法基础理论的协调、统一。

It is generally believed academically that the concept of administrative act refers to the administrative actions taken by state organs in accordance with law,which directly or indirectly have legal effects. The primary value of this concept of administrative act lies in the maintenance of social order but the concept lacks a clear setup,definiteness,and flexibility. With the establishment of the market economy and modern administration's increased concern about democracy and rationality,service administration began to emerge in the laws and protection of human rights as the primary value has gradually escalated to the summit of the law values. The academic definition does not match the value status of the law,fails to cover the service administration in content,and cannot explain the methods of service administration. Therefore the concept of administrative act should be more broadly interpreted according to the Chinese judicial practice. The expanded concept of administrative act will take human right protection as its primary value,include administrative legal act,administrative factual act,and quasi-administrative(legal)act,and thereof form a system of administrative act with Chinese characteristics. It is necessary to amend the theory of the administrative act's establishment so as to achieve the coordination of the basic theory of the administrative law based on the value status of the law and the judicial practice requirements.