行政规范性文件附带审查进路的司法建构

Judicial Construction of Normative Documents Incidental Review Approach in Administrative Litigation

对新《行政诉讼法》实施后的200件行政判决文书进行法教义学分析,可以发现行政规范性文件附带审查主要从被诉请对象的可审查性、与争讼行政决定的关联性和行政规范性文件的合法性三个方面展开。可审查性基于行政行为"具体—抽象"二元框架厘定附带审查的对象范围,并回应特定制定主体对行政规范性文件可审查性的影响。关联性强调法院需查证被诉请审查的行政规范性文件是否确系行政机关作出争讼行政决定的直接依据并分别处置。合法性则要求法院从权限、程序以及内容三个层面判断行政规范性文件是否存在与上位法规则或原则相抵触的情形。行政规范性文件附带审查制度的内涵由此得到充实和丰富。其中凸显的行政权与司法权关系问题也有待深入研究。

Analysis of 200 administrative cases after the implementation of the new Administrative Procedure Law indicates that incidental review on normative documents is carried out from three aspects: the verifiability,the relevance and the legitimacy of the document. The verifiability of administrative normative documents is determined on the basis of the "concrete-abstract" dual framework of administrative action and influenced by the specific formulation bodies. The relevance standard emphasizes that the court must verify whether the normative documents appealed to be examined are exactly the direct basis of the administrative action and dispose of them separately. The standard of legitimacy requires the court to review the formulation authority,procedure and content of normative documents to determine whether they are legitimate and appropriate or not. The connotation of incidental review system of normative documents is thus enriched. Meanwhile,the relationship between executive power and judicial power also needs to be further studied.