游走在撤销与无效之间的行政越权行为

The Administrative Overreach that Walks between Revocation and Invalidation

《行政诉讼法》第70条规定“超越职权”是可撤销的一般事由,但对行政司法案例进行实证分析,行政机关的越权行为却被认定为无效,理由包括“重大且明显违法”、“不具有行政主体资格”以及“越权无效原则”。由于说明理由环节流于形式,仅点到为止,引发此违法情节中撤销与无效之间的界限不明。以此为契机,慎重考量实践中“超越职权”的各无效理由,只有当“超越职权”达到“重大且明显违法”程度时,撤销与无效才相互关联,因此无效理由应回归至“重大且明显违法”。对作为不确定法律概念的“重大且明显违法”予以精细化,即超越个别事务管辖或专属地域管辖之规定,对法秩序建构的行政职权分工构成了不可容忍的抵触,可将其纳入严重违法的无效情形,推进司法实践的协调统一。

Article 70 of the Administrative Procedure Law stipulates that “exceeding the authority” is a general cause that can be revoked. However, through empirical analysis of administrative judicial cases, the overstepping of the authority of administrative organs is identified as invalid, for reasons including “major and obvious illegal”, “not having the qualification of administrative subject” and “the principle of invalid overstepping of the authority”. Due to the fact that the explanation of reasons is only formal, the boundary between revocation and invalidation in this illegal situation is unclear. Taking this as an opportunity, the invalid reasons of “exceeding authority” in practice are carefully considered. Only when “exceeding authority” reaches the level of “major and obviously illegal”, the revocation and invalid are related to each other. Therefore, invalid reasons should return to “major and obviously illegal”. The “major and obvious illegal” as an uncertain legal concept should be refined, that is, beyond the jurisdiction of individual affairs or exclusive regional jurisdiction, which constitutes an intolerable contradiction to the division of administrative powers in the construction of legal order. It can be included into the invalid situation of serious illegal, so as to promote the coordination and unification of judicial practice.