部际信用治理合作备忘录:性质、效力与优化

Inter-Ministerial Memorandum of Cooperation on Credit Governance:Legal Nature,Effectiveness and Optimization

合作备忘录是部际信用合作治理的重要方式。不同于行政规范性文件,合作备忘录既是公法协定中的部际协定,也是一种契约治理形态。合作备忘录遵循契约相对性一般原理,具有相对效力,但这种效力相对性也是相对的。由于科层制特有的权力结构与行政服从义务、不完善的信用立法、对个人利益的保护等,合作备忘录的效力溢出至地方公权力主体和相对人。合作备忘录具有补充信用立法、强化行政协助、促进参与式治理等优势,也存在冲击法律体系、违反法律保留原则、规避监督、缺乏合作保障等不足,因而需从合法性、规范性、民主性等方面加以优化。

The memorandum of cooperation is an important way for inter-ministerial credit cooperation governance.Unlike administrative normative documents,it is not only an inter-ministerial agreement in public law,but also a form of contractual governance.The memorandum of cooperation follows the general principle of contract relativity and has the relativity of effectiveness,but this relativity of effectiveness is also relative.Due to the unique power structure and administrative obedience obligation of bureaucracy,imperfect credit legislation and the protection of personal interests,the effectiveness of memorandum of cooperation overflows to the subjects of local public power and their counterparts.The memorandum of cooperation has the advantage of supplementing credit legislation,strengthening administrative assistance and promoting participatory governance,but it also has the defects of impacting the legal system,violating the principle of legal reservation,evading supervision and lacking a cooperation guarantee,so it needs to be optimized in terms of legality,standardization and democracy.