行政诉讼中党政联合规范性文件的附带审查  

On the Incidental Review of Party and Government Joint Normative Documents in Administrative Litigation

作　　者：李政洋 Li Zheng-yang(School of Law,China University of Political Science and Law,Beijing 100088)

机构地区：[1]中国政法大学法学院,北京100088

出　　处：《行政法学研究》2024年第6期154-165,共12页Administrative Law Review

基　　金：2021年度国家社科基金重大项目“行政法总则制定的理论与实践问题研究”(项目编号:21&ZD191);中国博士后科学基金资助项目(资助编号:2023M743913)的阶段性成果;“国家资助博士后研究人员计划”资助(资助编号:GZB20230868)。

摘　　要：党政联合规范性文件是指党的机关和行政机关联合制定的包含权利义务性内容且具外部效力的规范性文件。因缺乏明确规定,关于此类规范性文件的附带审查,司法应对态度较为消极。在解释论上,《行政诉讼法》第53条中的“规范性文件”作为诉讼法概念具有三重意涵:在诉讼要件意义上,特指权利义务性内容而非文件形式;在行政行为合法性溯源与补强意义上,其外延具有周延性;在行为依据与评价依据等置意义上,其与实体法上的(外部)“规范性文件”具有概念统一性。据此,党政联合规范性文件“当然”地包含于其中。党政联合规范性文件的“双阶关系”结构,可以维持行政性规范内容的独立性,法院审查该部分的合法性,非但不会造成司法权对领导权的侵扰,反而有利于维护司法监督行政的制度统一性,更有益于党坚持依法执政。该类规范性文件的独特体系定位及内含的合规性要素,决定了在其关联性判断、具体审查内容及评价依据资格认定上,仍需适用特殊的具体规则。Party and government joint normative documents are normative instruments jointly formulated by Party organs and administrative agencies that contain rights and obligations and exert external effects. Due to the lack of explicit provisions, the judicial attitude towards the incidental review of such normative documents is relatively negative. In the interpretive theory, “normative documents” in Article 53 of the Administrative Litigation Law carries triple connotations: 1) in the context of litigation prerequisites, it specifically denotes contents concerning rights and obligations, rather than the form of the document;2) from the perspective of tracing and reinforcing the legality of administrative actions, its scope is expansive by nature;and 3) in the sense that the basis of conduct and the basis of evaluation are equivalent, it exhibits conceptual unity with external “normative documents” under substantive law. Accordingly, Party and government joint normative documents are inherently encompassed within this framework. The dual-tiered structural relationship of such joint normative documents serves to uphold the autonomy of administrative norms, where judicial review does not encroach upon the Party's leadership but sustains the systemic consistency of judicial supervision over administration, thereby contributing positively to maintaining the Party's governance according to the law. Nevertheless, the unique systemic positioning and embedded compliance elements of these joint normative documents dictate that special and specific rules must still be applied when determining their relevance, specific content for review, and eligibility criteria for evaluation bases.

关 键 词：党政联合发文 规范性文件 附带审查 依法执政 功能主义 

分 类 号：D925.3[政治法律—诉讼法学]