行政规范性文件的功能结构

The Functional Structure of Administrative Regulatory Documents

在行政诉讼附带审查中,规范性文件属于行政行为的“依据”。该“依据”的表述具有什么内容,尤其是与法规范的行为“依据”间究竟是什么样的关系,值得讨论。本文以最高法院发布的《典型案例》为分析对象,通过两个分析角度,一是规范性文件对行政行为的“依据”作用究竟为何;二是规范性文件与法规范这两个“依据”之间究竟相互起着怎样的作用的角度,归纳出判例中的规范性文件分别以(确定外延或设置构成要件的)解释基准和(职权衍生或法定的)法规范替代性规范的方式,间接或者直接赋予行政行为法效力的不同功能。“依据”的这些不同功能结构,决定着司法审查的重点关注要件因此有所差异。两个角度的分析及其结果意味着我国既有行政规范体系理论应有的变化,为导入有关行政规则的理论找到了中国化的立足点,同时也揭示了目前开始必须面对诸如“法化”等新的问题。

Regulatory documents are the legal basis for administrative acts in incidental review of administrative litigation.It is worth discussing what content the expression of"basis"has,especially what kind of relationship it has with legal norm.This article takes typical cases issued by the Supreme Court as the analysis object,and analyzes them from the following two perspectives:first,what role do regulatory documents play as the basis for administrative acts?Second,what is the interaction between the two"basis"of regulatory documents and legal norms?This article summarizes that regulatory documents endow different functions of legal effects in administrative acts indirectly or directly,by means of interpretive benchmarks(determining the extension or setting the constituent elements)and alternatives of legal norms(ex officio or statutory).These different functional structures of the"basis"determine the focus of judicial review on the legal elements varies.The analysis of the two perspectives and their results implies a changing trend in the theory of the existing administrative normative system,finding a Chinese foothold for the importation of extraterritorial theories about administrative rules,as well as revealing new legal problems such as"Juridification"that must be faced at present.