行政复议与诉讼中的规章:定位区分、立法逻辑与适用展开

Administrative Review and Litigation Rules:Location Differentiation,Legislative Logic and Applicable Expansion

《行政复议法》和《行政诉讼法》分别将规章定位为“审理依据”和“审理参照”,这种定位差异是由规章在我国规范体系中的“尴尬”位置所导致的。从立法逻辑来看,行政诉讼是司法权的行使,行政复议是行政权的行使,司法权与行政权的性质、关系以及行政权的内部关系,决定了这种区分的必要性,而立法的妥协性使得这种区分仅限于规章,不包括行政法规和规范性文件。然而,从法律适用的逻辑来看,在《立法法》关于法律规范位阶规定的限制下,行政诉讼中“参照规章”和“依据行政法规”之间在“拒绝适用”上并没有本质区别,二者区分的实质在于合法性假定程度和审查强度的不同。为了与行政诉讼中的法律适用规则相衔接,行政复议机关同样需要根据法律规范位阶进行法律适用。基于行政权的内部关系,应当参照《行政复议法》对于规范性文件的合法性处理机制对行政规章进行相应处理。

The"Administrative Reconsideration Law"and the"Administrative Litigation Law"position administrative rules as"trial basis"and"trial reference"respectively.This difference in positioning is caused by the"awkward"position of regulations in Chinese normative system.From the perspective of legislative logic,administrative litigation is the exercise of judicial power,and administrative reconsideration is the exercise of administrative power.The nature and relationship between judicial power and administrative power,as well as the internal relationship between administrative power,determine the necessity of this distinction,and the compromise nature of legislation makes this distinction limited to administrative rules,excluding administrative regulations and normative documents.However,from the perspective of the logic of legal application,under the restrictions of the Legislation Law on the hierarchy of legal norms,there is no essential difference in"refusal to apply"between"referring to rules"and"according to administrative regulations"in administrative litigation,the essence of the difference between the two lies in the difference in the degree of legality assumption and intensity of review.In order to connect with the rules of legal application in administrative litigation,the administrative reconsideration organ also needs to apply the law according to the level of legal norms.Based on the internal relationship of administrative power,administrative rules should be handled accordingly with reference to the legality processing mechanism of normative documents in the Administrative Reconsideration Law.