行政公益诉讼中“不依法履行职责”认定的实质回归及其展开

The Substantial Return of the Identification of“Not Performing Duties According to Law”in Administrative Public Interest Litigation and its Development

“不依法履行职责”的认定是行政公益诉讼的核心问题。有关“行为——结果标准”的学术论争普遍将“不依法履行职责”作为单一的行为来对待,忽视了《行政诉讼法》第25条第4款中“不依法履行职责”包括行为、结果、因果关系等多个构成要件的特点,应当回归这一基点并由此明晰“不依法履行职责”的实质意蕴。行政公益诉讼的督促(纠正)之诉性质内在规制着“不依法履行职责”的行为要件、结果要件的涵义。《公益诉讼办案规则》从正反两方面规定“不依法履行职责”具有重要意义。当前,有必要消除“三要件说”中的一些不合理之处对司法实践的不当影响,尤其需要直面依职权行政不作为侵害公益的特殊性,破解依职权依法行政履职行为的“程度要求”,从抽象的职责职权规定确定具体的作为义务,认定“公益得到有效保护”之“有效”等理论实践难题。

The identification of“not performing duties according to law”is the core issue of administrative public interest litigation􀆰The academic debate about“behavior criterion or result criterion”generally considers“not performing duties according to law”as a single behavior to treat and thereby puts forward problems,and it ignores the characteristics of constitutive requirements of“not performing duties according to law”,which are provided in article 25 of paragraph 4 of the administrative procedure law and include behavior,results,causal relationships􀆰This point should be returned to and the essential connotation of“not performing duties according to law”shall be clarified thereby􀆰The nature of supervision(correction)of administrative public interest litigation internally regulates the meaning of behavior elements and result elements of“not performing duties according to law”􀆰That the Rules for Handling Cases of Public Interest Litigation stipulates“not performing duties according to law”from both positive and negative aspects is of great significance􀆰At present,it is necessary to eliminate the improper influence to the judicial practice caused by some unreasonable parts of“the three elements theory”,especially to confront the particularity of infringe on public welfare caused by administrative inaction by duty and to answer the theoretical and practical problems such as how to consider“degree requirement”of performing behaviors during administration by duty and administration by law,how to consider the specific obligations from the abstract provisions of duty and authority,and how to identify the“effectiveness”of“effective protection of public welfare”,etc。