责令限期拆除行为的二元化建构及司法审查进路

Dual Construction and Judicial Review Approach of Ordering Demolition within a Time Limit

责令限期拆除本是行政机关针对违法建设、违法占地行为常见的执法手段之一,但理论界和实务界对于责令限期拆除行为的性质以及可诉性存在较大争议。尽管《行政处罚法》(2021修订)第九条并未明确责令限期拆除是否属于行政处罚,但其第六项"法律、行政法规规定的其他行政处罚"作为兜底性条款为责令限期拆除的行政处罚性质保留了法律依据。基于责令限期拆除行为的"二元化"结构,若行政机关作出责令限期拆除行为居于行政执法程序的中间环节,则将其视为一种过程性的行政命令,不具有可诉性;若行政机关作出责令限期拆除行为居于行政执法程序的最终环节,无论其采取何种形式,均视为行政处罚,应当按照《行政处罚法》的规定履行查处程序并进行司法审查。

Ordering demolition within a time limit is one of the common law enforcement means of administrative organs for illegal construction and illegal land occupation.However,there are great disputes about the nature and Actionability of ordering demolition within a time limit in theoretical and practical circles.Although Article 9 of the administrative punishment law(revised in 2021)does not specify whether it is an administrative punishment to order the demolition within a time limit,its sixth“other administrative penalties specified in laws and administrative regulations”as a bottomup provision retains the legal basis for the nature of the administrative punishment to order the demolition within a time limit.Based on the“dualistic”structure of the act of ordering demolition within a time limit,if the act of ordering demolition within a time limit is in the middle of the administrative law enforcement procedure,it will be regarded as a procedural administrative order,which is not actionable;If the administrative organ orders the demolition within a time limit,which is the final link of the administrative law enforcement procedure,no matter what form it takes,it shall be regarded as an administrative punishment,and the investigation and punishment procedures shall be performed and judicial review shall be conducted in accordance with the provisions of the administrative punishment law.