行政活动法律保留的结构变迁

Structural Changes of Statutory Reservation of Administrative Activities

法律保留以国家与社会二元对立为理论前提,是保障公民自由权的重要手段。伴随着国家从君主立宪到国民主权的转变,法律保留理论发生了重大改变,在出发点上由保障人民的自由扩及对行政的民主性控制,在保留事项上由侵害性行政行为扩大至权力性行政、重要事项等,在内容上由仅仅关心将行政的何种行为权限保留给法律延展至保留给什么样的法律。在这一变迁背后是立法—行政—人民三者关系结构的变化。中国自清末民初从日本引入法律保留理论之后,对实行法律保留具有一定共识,但在保留的法规范、保留范围和强度上存在分歧。在当代中国,既要考虑上述三者之间的关系结构,也要考虑宪法的规定以及现阶段的国家任务等因素,应当坚持侵害行政法律保留的立场,并适时扩充侵害的内涵,以贯彻法治国家保障公民自由权的基本要求。

Statutory reservation is based on the theoretical premise of the dichotomy between the state and society, and is an important means of guaranteeing citizens’ freedom. Along with the transformation of the state from constitutional monarchy to national sovereignty, the theory of statutory reservation has undergone significant changes, from the starting point of guaranteeing people’s freedom to the democratic control of the administration, from infringing administrative acts to powerful administration or important matters, and from the content of what kind of administrative acts are reserved to law to what kind of law is reserved. Behind this change is a change in the structure of the relationship between the legislature, the executive and the people. Since the introduction of the theory of statutory reservation from Japan in the late Qing Dynasty and the early Republic of China, there is a certain consensus on the implementation of statutory reservation, but there are differences in the legal norms of reservation, the scope and intensity of reservation. In contemporary China, it is necessary to consider the structure of the relationship between the above three, as well as the provisions of the Constitution and the national tasks at the current stage, etc. The position of infringement reservation should be adhered to, and the connotation of infringement should be expanded at the appropriate time to carry out the basic requirement of Rechtstaat to protect civil liberty rights.