行政程序立法中兜底条款设置的原理及技术

Principles and Techniques for the Establishment of Catch-All Provisions in Administrative Procedural Legislation

兜底条款是最为常见的立法模式之一,也普遍存在于行政程序法律规范中。行政程序立法中兜底条款有多种样态,设置呈现出差异性,有违法制的统一性,如何设置兜底条款这一基本问题有待澄清。兜底条款频繁设置于行政程序立法之中,是因为兜底条款可以调和规范行政权运行与行政程序立法的不完整性之间的矛盾。以所在程序规范为标准,兜底条款可分为权利性程序兜底条款与义务性程序兜底条款两类。两类兜底条款都遵循明确性原则,但各自的影响、遵循的原则以及明确性程度又有所区别。据此,权利性程序兜底条款可多设,宜以单纯“其他”型样态来表达;义务性程序兜底条款应慎设,宜以“规范+其他”型样态来表达,其中,“规范”为哪个层级的法,视兜底条款所指向的义务性程序之重要性而定。此外,由于兜底条款的设置需例举规定襄助,例举规定的设计至少应符合数量、内容和外观要求。

Catch-all clauses are one of the most common modes of legislation,which are commonly found in the legal norms of administrative procedures.It is found that there are various types of catchall clauses in administrative procedure legislation,and the setting shows differences,which is contrary to the uniformity of the legal system,so the basic question of how to set up the catch-all clauses needs to be clarified.Catch-all clauses are established in the administrative procedure legislation,because catchall clauses can reconcile the contradiction between regulating the operation of the administrative power and the incompleteness of administrative procedural legislation.Catch-all clauses can be divided into two categories,namely,rights-based and obligations-based procedural catch-all clauses,based on the procedural norms in which they are located.Both types of provisions are guided by the principle of clarity,but they differ in their impact,the principles of administrative law they follow,and the degree of clarity.Accordingly,rights-based procedural catch-all clauses can be set up more often,and it is appropriate to express them in a purely"other"form;obligatory procedural catch-all clauses should be set up with caution,and it is appropriate to express them in a"norms+other"form.Among them,the level of law at which"norms"refers depends on the significance of the obligatory procedures to which the catch-all clause refers.In addition,since the establishment of the catch-all clause requires the assistance of the exemplary provisions,the design of the exemplary provisions should at least meet the requirements of quantity,content and appearance.