论行政复议的性质界定与功能定位——兼议我国行政复议立法宗旨的变动

On the Nature Definition and Function Orientation of Administrative Review—and Discussion on the Changes in the Purpose of Administrative Review Legislation in China

如何认识并界定行政复议的法律性质,是行政复议立法的推进起点。行政复议的性质界定决定了其功能定位,因而综合决定了行政复议体制机制、程序规则、法律效力以及与相关法律制度的衔接关系等。行政复议的性质功能在我国从统一立法之前的“行政司法”说和权利救济导向共识调整为《行政复议条例》制定中“内部监督”说与偏重行政监督,在《行政复议法》制定过程中又经历了“反司法化”与救济优先的反复与妥协。最终,在历经理论破冰、政策突破、行政推动、定位升级、修法加速五个阶段的理论创新与实践探索后,确立了“行政纠纷化解机制”的根本属性与救济优先、兼顾监督的多功能设计。从我国行政复议立法的演进历程探寻行政复议性质功能调整变化的内在动因,对完善和发展行政复议法律体系,改进行政复议实务运作,具有重要的理论意义和实践价值。

Understanding and defining the legal nature of administrative review is the starting point for the advancement of administrative review legislation.The definition of the nature of administrative review determines its functional positioning,and thus comprehensively determines the system and mechanism of administrative review,procedural rules,legal effect,and the relationship with relevant laws.The nature and function of administrative review has been adjusted from the“administrative justice”theory and rights relief-oriented before unified legislation to the“internal supervision”theory in the formulation of the“Administrative Review Regulations”and the emphasis on administrative supervision.During the formulation of the“Administrative Review Law”it has also experienced repeated and compromised“anti-judicialization”and priority relief.Finally,after the theoretical innovation and practical exploration of five stages of theoretical ice-breaking,policy breakthrough,administrative promotion,positioning upgrade,and law amendment acceleration,the fundamental attributes of the“administrative dispute resolution mechanism”and a multi-functional design with priority for relief and supervision were established.Exploring the internal motivation of the legislative change of the definitional nature of administrative review has important theoretical and practical value for perfecting and developing the administrative review legal system and improving the practical operation of administrative review.