公共企事业单位信息公开的审查之道:基于108件司法裁判的分析

Judicial Review of Openness of Public Enterprises and Institution:Survey of 108 Judgments

考察2011-2018年间108份公共企事业单位信息公开行政案件裁判可以发现,我国法院在适用修订前的《政府信息公开条例》第37条过程中,围绕“谁是公共企事业单位”和“信息应否公开”两大问题,就“参照执行”的主体和方式已发展出颇为系统、精细的审查逻辑,并在很大程度上推翻了以往研究所提出的“阶段渐进论”“主体类同-职能类同”和“形式主义-实质主义”模式等识别公共企事业单位的学说,以及用以判定信息应否公开的“最少存留适用”规则。但既存审查逻辑也存在值得进一步完善之处。在修订后的《政府信息公开条例》实施过程中,更为理想的审查思路是:认定公共企事业单位时,应扩大形式性依据的参考范围,借鉴正在进行的事业单位和国有企业分类改革对相关组织的业务职能做实质性考量;判断信息应否公开时,不应从正面要求信息被列举为公开项目,而应从反面考察信息是否属于实体性或程序性的公开例外。

A survey of 108 judgements on openness of public enterprises and institutions between 2011 and 2018 yields the following findings: in the course of applying Article 37 of the Open Government Information Regulations, the Chinese courts have developed rather systematic and nuanced jurisprudence on the identification of public enterprises and institutions and the determination of disclosure and non-disclosure. Such practical jurisprudence has to a large extent overturned a series of theories proposed by previous research, including the principle of maximalist application. Nevertheless, the current judicial approach is not immune to further improvement. A better approach is that when identifying public enterprises and institutions we shall consult more broadly for formalistic legal basis, and make reference to the ongoing reforms of these organizations for substantial categorization;when determining whether certain information shall be disclosed, we shall not expect such information to be listed as items for disclosure, but shall check if it falls in the exception to the rule of transparency.