新行政诉讼法中“行政行为”辨析——兼论我国应加快制定行政程序法

The Analysis of “Administrative Act” in New Administrative Procedural Law——Comments on the Immediacy of Enacting Administrative Procedure Act As Soon As Possible

行政行为是行政法学的核心概念,但其范围在学理上存在较大的认识分歧。"行政行为"替代"具体行政行为"成为新行政诉讼法的核心概念,但行政诉讼法没有对行政行为作出界定。确定行政行为的范围应当回应保障公民诉权的修法目的,最大限度接近对公民权利的司法无遗漏保护,将实践中影响公民权益的行政权力运行形态尽可能纳入行政行为概念之中。行政行为包括但不限于受案范围逐项列举的情形,事实行为、重大行政决策行为、规范性文件也包括在内。规范行政权的基本法——行政程序法是法院审理行政案件的重要法律依据,我国应尽快制定行政程序法,建构行政行为基本原则、行政合同法律制度和行政行为效力制度等,解决法院因行政程序法缺失面临的法律适用困境。

Although administrative act is the core concept of administrative jurisprudence,its scope differs a lot among the scholars. 'Administrative act'replaced 'specific administrative act'as the core concept of the new Administrative Procedural Law,while the new law does not define it. It should respond to the purpose of amending the law to maximize the judicial protection of citizen rights and incorporate the operation of administrative power influencing citizen interests as widely as possible to determine the scope of administrative act. Administrative act includes but not limited to the acts listed in the law. Factual behavior,significant administrative decisionmaking and rulemaking should also be included. While Administrative Procedure Act is an important criteria for courts to handle administrative cases,it should be enacted as soon as possible to solve the difficulties resulting from its absence,in which the items such as the basic principles of administrative act,administrative contract and legal effect of administrative act should be stipulated.