论行政许可法上的增设

Examining Additional Administrative Licensing from the Perspective of Administrative License Law

行政许可法上的增设具体包括增设非必要的许可事项、增设上位法已设定的许可事项和增设违反上位法的许可条件三类。前两类构成行政许可的增设,而第三类构成许可条件的增设。从实践情况观察,法院和备案审查机关极少对“禁止增设条款”进行解释,在判断是否构成增设时,通常仅以“不一致”作为判断其是否构成增设的标准,或者诉诸抽象的“不抵触原则”。基于对具体的规范和案例样本的归纳,有关许可的增设,应从许可事项的具体语词结构、事项之间的种属关系以及上位法条文的制定目的出发进行判断。拆分既有许可事项并改变部分分项的实施主体、条件或程序,在既有许可事项的已列举分项外加入别的分项,或者在上位法不设定许可的情况下补充设定许可,均构成行政许可的增设。关于行政许可条件的增设,应从许可条件的具体规定是否超出事理上的当然范围以及条件与事项之间是否构成不当联结出发进行判断。下位法设定超出事理上的当然范围以及构成不当联结的许可条件,构成行政许可条件的增设。

“principle of non-contradiction”,rather than interpreting the“prohibition of additional provisions”.Based on the analysis of concrete cases,this paper argues that the addition of licensing should be judged based on the specific language structure of the licensing matters,the relationship between the matters,and the purpose of the provisions in the higher-level law.Adding new sub-matters to existing licensing matters,changing the implementation of subjects,conditions or procedures,and creating new licensing matters when the higher-level law does not set them can all constitute additions to administrative licensing.Regarding administrative licensing conditions,specific provisions should be judged based on whether they go beyond the scope of the matter at hand and whether the conditions and matters are improperly linked.The two cases where subordinate laws set licensing beyond the ex officio scope of the matter and create an improper linkage of licensing conditions both constitute administrative licensing conditions.