行政法派出机关与派出机构理论的检视与反思

Review and Reflection on the Theory of Agencies and Branches in Administrative Law

行政法派出机关与派出机构的现有理论以设立机关为标准将二者进行区分,主要是出于在行政主体理论框架下判断适格行政主体的需要。但长期以来,大量县设街道办事处的合法性瑕疵,围绕开发区和城市新区管理机构法律地位及其行政主体资格的争论,有关派出机构基层行政组织的认识局限以及行政机关和人民法院对于法律、法规、规章间接授权的不同态度,无形中对现有理论形成了不小的冲击。重新检视这一理论,亟须在知识体系上进行必要的更新并指导今后相关规范的修订:一是适当扩大法定派出机关的范围;二是改变相对人救济需要前置判断派出机构是否授权的繁琐做法;三是从宽评价对派出机构的间接授权,扩大法定授权组织的认定范围。

The existing theory of administrative law distinguishes between agencies and branches based on the establishment of organs,mainly for the need to judge eligible administrative subjects within the framework of administrative subject theory.However,for a long time,legitimacy flaws of a large number of county-level street offices,debates over the legal status and administrative subject qualifications of management committees in development zones and urban new areas,limitations in understanding grassroots administrative organizations around branches,and the different attitudes of administrative organs and people's courts towards indirect authorization by laws,regulations,and rules have invisibly formed a significant impact on existing theories.To re-examine this theory,it is urgent to make necessary updates to the knowledge system and guide the revision of relevant norms in the future:the first is appropriately expand the scope of statutory agencies;the second is to change the cumbersome practice of pre-judging whether the branches is authorized for the relief of the counterpart;the third is to leniently evaluate the indirect authorization of branches and expand the scope of recognition of legally authorized organizations.