行政规范性文件的体系化治理论纲

Theoretical Outline of Systematic Governance of Administrative Regulatory Documents

现实中的依法行政往往表现为依文件行政,这种情况尤其是在基层政府表现更甚。一概否认或者简单肯定行政规范性文件在实践中的作用都不可取。为遵循依法行政原则的基本理念,行政规范性文件在保障和推进社会治理的同时,其自身也应当得到有效规制,故行政规范性文件的体系化治理机制之构建是一项不可或缺的制度设计。现有人大的备案审查、行政的自我审查、司法的附带审查虽然发挥了各自的积极作用,但由于各自治理模式自身的问题以及未能形成体系化的治理机制,治理效果依然不佳。在逐步厘清行政规范性文件的内涵、外延乃至名称等形式问题的基础上,规范三大系统各自的审查标准和审查程序,使得三大系统对行政规范性文件的监督各有侧重、分工协作。最终建立起以立法规范为引领、行政自我约束为基础、人大备案审查为条件、司法审查为保障的行政规范性文件有序治理体系。

In reality,administration according to law is often manifested as administration according to documents,especially in the grass-roots government.It is not advisable to deny or simply affirm the role that administrative regulatory documents play in practice.In order to follow the basic principle of administration according to law,administrative regulatory documents should be effectively regulated in the process of protecting and promoting social governance.Therefore,it is an indispensable choice to construct a systematic governance mechanism for administrative regulatory documents.Although the performance of the existing three systems,including filing and inspection by National People’s Congress,self-review by administrative bodies,and incidental review by judicial organs,play their respective positive roles,the governance effect is still poor due to their respective governance modes and their failure to form a systematic governance mechanism.On the basis of clarifying the connotation,denotation and designation of administrative regulatory documents,we should standardize the examination standards and procedures of the above three systems,so as to make their supervision on administrative regulatory documents have their own emphasis and make their work coordinated.Finally,an orderly governance system for administrative regulatory documents is expected to be established,which is guided by legislative norms,based on administrative self-restraint,conditioned on the filing and inspection of National People’s Congress,and guaranteed by judicial review.