论复议机关做被告与做共同被告的不同价值功能

On the Different Values and Functions of the Reconsideration Organ as Defendant and Co-defendant

复议机关因维持原行政机关的行政行为而与原行政机关成为共同被告,是我国《行政诉讼法》修订后的新规定,意在“倒逼”复议机关依法积极、负责地开展复议工作。但这只考虑了复议机关做“被告”的价值功能,没有反映出复议机关做“共同被告”的价值功能。复议机关在做共同被告时既是被告也是共同被告,故其制度设计要能兼顾两种价值功能。不同类型共同被告的价值功能各有重点:因同一行政行为产生的共同被告,其价值功能主要在于方便法院查明两个以上被告共同作出同一个行政行为的案件事实,公平认定和划分它们应分担的法律责任;因同类行政行为产生的共同被告,其价值功能主要在于对两个以上被告分别作出的同类行政行为并案审理,以达成简化程序、节省诉讼成本的目的。复议机关对原行政行为作出维持决定,本质上是对其予以肯定性评价的同类行政行为,由此形成的共同被告案件在审理上应以原行政行为为主,对复议维持决定可实行附带审查并探索书面审理的方式,以简化程序、减少法院司法成本和复议机关应诉成本的耗费。

Under China's amended Administrative LigitationLaw,the reconsideration agency becomes a co-defendant with the original administrative organ when it maintains the administrative actions of the original administrative organ.The underlying intention is to activate the function of administrative reconsideration to resolve administrative disputes.However,this only considers the value and function of the reconsideration agency as a"defendant",but fails to reflect the value and function of the reconsideration agency as a"co-defendant."The reconsideration agency can both be the defendant and the co-defendant when making the co-defendant,so the system design must take into account the two functions.The function of the co-defendants has different focuses in different types of co-defendants:the co-defendants arising from the same administrative act have their function mainly in facilitating the court to ascertain the facts of the case where two or more defendants jointly make the same administrative act.The co-defendants arising from similar administrative actions,their value function mainly lies in the trial of similar administrative actions made by two or more defendants in order to achieve the purpose of simplifying procedure solving multiple administrative disputes and saving litigation costs.The reconsideration agency makes a maintenance decision on the original administrative act with independent legal effect.Essentially,it is the same kind of administrative act that relies on the original administrative act and affirmatively evaluates it.The co-defendant case formed by this should be the original in the trial.The administrative act is the main one.The review of the reconsideration decision can be carried out with an attached review and explore the way of written trial,so as to simplify the procedure,reduce the judicial cost of the court and the cost of the reconsideration agency's costs.