法律-文件共治模式的生成逻辑与规范路径——基于四十年教育规范性文件的考察

The Generating Logic and Standard Path of the Mode of Co-Governance of Law and Documents—On the Basis of 40 Years' Educational Administrative Documents

行政机关或党政机关联合制发规范性文件是行政实践中的现实图景。通过对教育领域的实证考察发现,法律和规范性文件在不同时期呈现不同的互动模式,并在当前改革背景下形成了法律文件共同治理的格局。新时期法律文件共治模式既具有法律位阶理论和功能主义视角下的法理基础,也源于“文件治国”在社会政策变迁中的功能多元化需求,以及行政效能原则下的实践基础。法律文件共治模式在治理实践中的功能发挥,需要以厘清二者内容边界作为前提条件、以二者体系共存的相容性作为价值指引,以及以法律的立改废释与文件的清理备案作为程序保障。

It is a realistic picture in administrative practice that administrative organs or the Party and government organs jointly produce and issue normative documents.Through the empirical study in the field of education,it is found that law and normative documents present different interactive patterns in different periods,and form a pattern of law document co-governance under the current reform background.The mode of law document co-governance in the new era not only has the legal basis from the perspective of legal rank theory and functionalism but also stems from the diversified demand of“document governance”in the change of social policy,as well as the practical basis under the principle of administrative efficiency.The function of the legal document co-governance model in governance practice needs to be based on the premise of clarifying the content boundary of the two,the value guidance of the compatibility of the two systems,and the procedural guarantee of the legislative reform,the repeal and the filing of documents.