行政黑名单制度的法律属性及其可诉性——基于规范结构的实证分析  

The legal nature of administrative blacklist system and its justiciability:Empirical analysis based on normative structure

作　　者：白云锋 BAI Yunfeng(Law School,Nanjing University,Nanjing 210093,P.R.China)

机构地区：[1]南京大学法学院,江苏南京210093

出　　处：《重庆大学学报(社会科学版)》2025年第1期259-271,共13页Journal of Chongqing University(Social Science Edition)

基　　金：国家社会科学基金青年项目“应急行政中行政法律责任的追究与豁免问题研究”(22CFX057)。

摘　　要：近年来,在行政审批制度改革、突发事件应对与建立诚信社会的背景下,起源于英国教育领域惩罚不端行为学生的“黑名单”制度开始在我国行政管理领域被广泛运用。行政黑名单制度虽然对于提高政府风险预防能力、增强执法联动性等具有积极意义,但也会对被记入黑名单的行政相对人权益产生负面影响。如果行政相对人认为被列入黑名单等行为侵犯自身的合法权益,是否可以对此提起行政诉讼以追究行政机关及其公职人员违法行政的责任,成为关键问题。这一问题取决于对行政黑名单制度性质的认定。从实证法角度考察,行政黑名单制度具有“单一黑名单型”“黑名单+公开型”“黑名单+直接惩戒型”“黑名单+间接惩戒型”“黑名单+联合惩戒型”“黑名单+独立惩戒型”六种规范内在结构,存在“基于黑名单行为本身的效果实现”“基于黑名单直接触发的惩戒行为的效果实现”与“基于黑名单间接附加的惩戒行为的效果实现”三种外在效果实现结构。行政黑名单行为是否可诉,首先需要判断行为是否属于《行政诉讼法》规定的受案范围。对于不属于明确列举受案范围的行政黑名单行为,还需要实质判断其是否对行政相对人权益“不产生实际影响”。具体而言,“单一黑名单型”行为不具有外部效果,属于内部行政行为,不可诉;“黑名单+公开型”行为会对相对人权益产生事实上的影响,可诉;“黑名单+直接惩戒型”行为具有行政法上的意思表示内容,属于具体行政行为,可诉;“黑名单+间接惩戒型”和“黑名单+联合惩戒型”行为中的黑名单属于后续惩戒行为的事实要件,被单独公开后可诉,未被单独公开则仅具有诉惩戒行为之时的附带可诉性。在自然危险与自反性风险交织的高度复杂社会背景下,行政机关基于现实执法需求、信息技术基础与改革�In recent years,China has widely adopted the blacklist system,a concept originated from British education to penalize student misconduct,in its administrative management.This adoption comes amid reforms to the administrative approval system,emergency response,and efforts to build a trustworthy society.While the administrative blacklist system positively enhances government risk prevention and strengthens law enforcement coordination,it can adversely affect the rights and interests of those blacklisted.A crucial question emerges:Can individuals who believe their blacklisting infringes upon their legitimate rights and interests initiate administrative litigation to hold the responsible agency and officials accountable for unlawful actions?This problem depends on the nature of administrative blacklist system.From the perspective of positive law,the administrative blacklist system has six internal structures:a single blacklist model,blacklist and disclosure model,blacklist and direct disciplinary model,blacklist and indirect disciplinary model,blacklist and combined disciplinary model and blacklist and independent disciplinary model.It also has three external effect realization structures:realization of effect based on blacklist act itself,realization of effect based on disciplinary act directly triggered by blacklist and realization of effect based on disciplinary act indirectly added by blacklist.Determining the justiciability of administrative blacklisting actions requires first assessing whether they fall within the purview of the Administrative Procedure Law.For blacklisting actions not explicitly covered by the law,a substantive evaluation must be made to determine if they have no practical impact on the rights and interests of the affected party.Specifically,a single blacklist model,which has no external effect,belongs to the internal administrative act and cannot be sued.The blacklist and disclosure model,which can produces factual influence to counterpart’rights,can be sued.The blacklists in blacklist and

关 键 词：风险治理 信用监管 行政黑名单 信用码 实证分析 行政诉讼 行政责任 

分 类 号：D912.1[政治法律—宪法学与行政法学]