行政组织法功能的行为法机制  

Behavioral Law Mechanism Functioning in Lieu of Administrative Organization Law

作　　者：叶必丰[1] 

机构地区：[1]上海社会科学院法学研究所

出　　处：《中国社会科学》2017年第7期109-130,共22页Social Sciences in China

基　　金：中宣部“文化名家暨‘四个一批’人才项目”、“区域法治协调研究”的阶段性成果

摘　　要：行政组织法的内容包括行政机关之间的横向关系规则,但我国行政组织法并未作出规定。这是各国普遍存在的必然现象,解决的路径是创设在实现规制目标的同时承担起相应组织法功能的行为法机制,可以由宪法加普通法、分散的实体法或者统一行政程序法加以创设。我国当前的行为法机制是由分散单行法规定的,在形式上表现为公文处理制度,在内容上表现为各种具体制度。其中,分别审批和审批要件机制加重了公民负担,联席会议、行政协议和"协商条款"等未加重公民负担且具有分权民主和平等协商的意义。行政组织法功能的行为法机制之所以存在,有职责—手段说、分权合作—民主自治说、信任—授权说以及制度—社会说。我国早期的行为法机制与计划经济具有密切关系,多适用于部际关系;基于简政放权改革后的行为法机制从部际关系拓展到区际关系。我国包括行为法机制在内的行政审批已泛滥成灾,必须改革。大部制改革应进一步深化,行政权应退出市场资源配置,明确地方主体、赋予地方终局性处理权、按治理需要配置地方事权,减少和优化行政机关间的横向关系,通过统一的行政程序立法整合行为法机制。The contents of administrative organization law include the rules of horizontal relations between administrative organs,but the administrative organization law in China makes no stipulation about it.This is an inevitable phenomenon usually seen in all countries,and a solution is to set up a behavioral law mechanism which functions in lieu of corresponding behavioral law while reaching a regulating objective.This solution can be designed by adding common laws and separate substantive laws to the constitution or unifying administrative procedure laws.Presently,the behavioral law mechanism in China is defined by separate laws,represented as a document processing system in form and as various particular systems in contents.In particular,respective examination and approval and the mechanism of examination and approval of important documents have worsened the burden of citizens,but joint meetings,administrative agreement and'consultation clause'do not worsen the burden of citizens,and have the meaning of decentralized democracy and equal consultation.As for the behavioral law mechanism functioning in the lieu of administrative organization law,there have the responsibility-means theory,the decentralized cooperation-democratic autonomy theory,the trust-authorization theory and the system-society theory.The early behavioral law mechanism in China was closely related to planned economy,and mostly applied to relations between governmental ministries;and the behavioral law mechanism based on a streamlining and decentralizing reform has been extended from relations between governmental ministries to those between different regions.The administrative examination and approval in China,including the behavioral law mechanism,have been catastrophically excessive,and have to be reformed.The super-ministry reform should be furthered,administrative power should retreat out of the distribution of market resource;and we should clarify local subjects,grant ultimate disposition power to local authorities,distribute local power in the li

关 键 词：组织法 行为法 行政审批 地方自主权 

分 类 号：D922.1[政治法律—宪法学与行政法学]