“行政”与“协议”的融合:行政协议识别标准的适用目的

The Integration of"Administration"and"Agreement":the Applicable Purpose of the Administrative Agreement Identification Standard

目前,由于对行政协议“四要素”识别标准功能的认识存在模糊性,从而出现实践和理论的双重困境。在实践中,由于司法解释在确定行政协议概念上的开放性结构,以及识别标准“四要素”内容内蕴的解释弹性空间,由此形成了量大面广的“其他行政协议群”,造成在行政管理和公共服务领域中行政协议“所向披靡”,基本无“禁区”的局面,从而导致规范供给严重不足的“依法行政”之困境;在理论研究层面,致力于将“四要素”标准置于行政协议概念之中进行微观层面的精细化分析,而忽视了行政协议作为全新的行政管理和公共服务方式的目的性关注。行政协议概念及其识别标准是基于客观需要之目的的主观创造,应当契合于行政协议制度实践之需而探究和解释之。因此,行政协议识别标准应当服务于行政协议制度的立法目的,方可走出概念要素提取和解释上的困境,因应由行政协议所开启的依约行政与依法行政共生共融的时代趋势。

At present,due to the ambiguity in understanding the functional identification of the"four elements"criteria for administrative agreement,a dual dilemma arises in practice and theory.In practice,owing to the open-ended structure of judicial interpretation in defining the concept of administrative agreements,coupled with the interpretive flexibility inherent in the"four elements"criteria,has lead to the formation of a vast and widespread"other administrative agreement"category.This results in a situation where administrative agreements are ubiquitous in the fields of administrative management and public services,and there is basically no"out-of-regulation zone",which leads to the predicament of"law-based government administration"with a serious shortage of regulations.At the theoretical research,the standard is placed in the concept of administrative agreement for micro-level detailed analysis,while neglecting the purposeful concern of administrative agreement as a new way of administration and public service.The concept of administrative agreement and its identification criteria are subjectively created based on objective needs,and should be explored and interpreted in line with the practical requirements of the administrative agreement system.Therefore,the identification criteria of administrative agreements should serve the legislative purpose of the administrative agreement system,so as to get out of the dilemma of extracting and interpreting conceptual elements,and adapt to the era’s trend of coexistence and integration between administration by agreement and law-based government administration.