行政规范性文件的司法审查强度研究

A Study on the Intensity of Judicial Review of Administrative Normative Documents

法院对行政规范性文件的审查历来有之,通过修改后的行政诉讼法对附带审查权的确立,从依职权选择审查发展为依职权选择审查和依申请附带审查两种形式并存的模式。在实践了依职权选择审查的行政审判中,法院基于以实用为主要目的,对行政规范性文件的适用性进行评价,适用行政规范性文件时对其做合法性审查兼必要的合理性审查,形成了合理性审查、合法性审查、不适用排除审查三个梯度。附带审查权确立时立法选择的是合法性审查标准。法院在实践判例中表现出促进行政机关自我规制的趋势,以合法性审查为原则,以合理性审查为例外。在附带审查权确立的同时,司法权对行政权的介入范围势必扩张,因此为平衡司法权监督功能的扩张和行政权自我规制的能力,附带审查以合法性审查为原则是必要且合适的。在依职权选择审查和依申请附带审查并存的模式下,应以法律要素为审查单元,确定审查内容和程度,构建多层次的法院对行政规范性文件的审查强度体系。

The people’s court has a tradition of reviewing the administrative normative documents.Since the right to incidental review has been established by the amended Administrative Procedure Law,the mode of judicial review has evolved from an ex officio selective review to the co-existence of the ex officio selective review and incidental review triggered by application.In administrative trials where ex officio selective review is practiced,the court evaluates the applicability of administrative normative documents mainly for practical purposes,and reviews the legality and the necessary rationality of administrative normative documents when applying them,forming three gradients from rationality review to legality review to inapplicability-triggered exclusion review.The legislative choice made at the time of establishing the right to incidental review was the criterion for legality review.In the concrete cases handled by the court,it has shown a tendency to promote the executive organs to implement self-regulation with legality review as the rule and rationality review as the exception.The establishment of the right to incidental review is inevitably accompanied by an expansion of the scope of the judicial power’s interference in the executive power,so in order to balance the expansion of the judicial power’s oversight function with the executive power’s ability to regulate itself,it is necessary and appropriate to take the review of legality as the rule when doing incidental reviews.Under the coexistence model of ex officio selective review and application-triggered incidental review,legal elements should be used as the review unit to determine the content and extent of review and to construct a multi-level system of intensity for the court’s review of administrative normative documents.