论规范性文件不予一并审查:判断要素及其认定规则——基于1799份裁判文书的分析

On the Non-incidental Review of Normative Documents:Judgment Elements and Its Determination Rules—Based on Analysis of 1799 Judgments

规范性文件“能否一并审查”是对规范性文件合法性进行实质审查的先决问题。根据现有的制度规定,可将司法实践中规范性文件不予一并审查的类型划分为基础性要件缺失、附带性要件缺失和例外情形等三类,每种类型都包含多种情形和不同判断要素。法院应当采取更加积极宽容的态度,尽可能地将更多的规范性文件纳入一并审查的范围。对于不予一并审查的规范性文件的认定,应当在区分规范性文件与非规范性文件的基础上,综合运用多种认定标准明确界定规范性文件排除审查的范围。应当赋予第三人一并审查的请求主体资格,并明确当事人延迟提出一并审查请求“正当理由”的判断标准。对于不予一并审查例外情形的认定,应审慎对待,严格约束法院司法裁量权的行使。

Whether the normative documents can be incidentally reviewed is a prerequisite issue for the legality review of normative documents.According to existing regulations,non-incidental review of normative documents in judicial practice can be divided into three categories:lack of basic elements,lack of incidental elements and exception.Each type contains multiple situations and different judgment elements.The court should adopt a more proactive and tolerant attitude,and include as many normative documents as possible into the scope of incidental review.Regarding determination of non-incidental review of normative documents,the basic thing is to make distinction between normative documents and non-normative documents and then to use multiple determination standards to clearly define the scope of normative documents excluded from the review.The third party should be qualified to request the incidental review of normative documents and standards for judging"good cause"for a party's delayed application for incidental review should be clarified.For the determination of exception,caution should be attached to,thus strictly restricting the court's exercise of judicial discretion.