法国行政法的法典化:起源、探索与借鉴

Codification of French Administrative Law: Origin, Development and Experience

法国行政法对法典化发展路径的选择,根源于对其传统判例法发展路径的反思。在行政法发展的初期,判例法发展路径能够克服成文法的规范分散、填补成文法的规范空白并避免与行政机关的直接冲突。然而,进入20世纪下半叶,判例法已日益无法满足民主性及体系化要求,法国改革者决定通过法典化重建清晰、稳定的行政法规范体系,以提升行政法规范面对社会公众的可接受性与可理解性。法国行政法之法典化的发展,先后经历了行政汇编模式、立法审议模式与特定法令模式,其对法典内容的编排乃基于判例规则形塑成文规范,调适成文规范嵌入目录结构,并划定法典边界协调内容交叠。借鉴法国行政法之法典化经验,我国行政立法领域之法典化应当明确以实体优化为主兼顾形式优化之目标;并采用不同组织形式分别编纂行政纲领性法典与行政领域性法典;对编纂之范围应当选择存量规范分散但同质性较强的领域进行法典化;并应引入结构性十进制编码完成条款整合;在法典编纂结束后,应由全国人大常委会法工委与司法部协作完成对于增量规范的持续嵌入。

French Administrative Law, in its codification process, can be traced back to its reflection on its traditional case laws. At its early development, case law could overcome the discreteness of the statutory provisions, fill the gaps of statute, and avoid the direct conflict with administrative agencies. However, in the second half of the twentieth century, case law had become increasingly unable to meet the requirements of democracy and systematization. It was then decided by French reformers to reconstruct a clear and stable system of administrative law through codification, so as to enhance its accessibility and intelligibility to the public. Its development in the codification has experienced the administrative compilation mode, legislative review mode and specific statute mode. The compilation of the code is through transforming the case rules into statutory ones, adjusting the written laws and embedding them in the directory structure, and delimiting the code boundary, coordinating the contents that overlapped. Drawing on the experience of the codification of French administrative law, the codification of administrative legislation in China should focus on the optimization of substance and form, by adopting a different organizational form through compiling respectively the program clauses and the field clauses for the administrative law, by codifying the existing discrete but homogeneous clauses, and by introducing the decimal coding structure to integrate the clauses. When the compilation of the code is finished, the legal working committee of the National People’s Congress and the Ministry of Justice should cooperate to embed in it the incremental clauses.