行政执法权下放法律依据之建构  

The Construction of Legal Grounds for the Delegation of Administrative Law Enforcement Power

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

机构地区：[1]南京大学法学院,南京210093

出　　处：《现代法学》2025年第2期158-173,共16页Modern Law Science

基　　金：研究阐释党的二十大精神国家社科基金重点项目“深化综合行政执法体制改革研究”(23AZD043)。

摘　　要：作为一项属地管理改革举措,行政执法权下放应以宪法上的“两个积极性原则”为基础,并遵守职权法定原则。职权法定可分为常时的职权法定与改革时的职权法定,改革状态下,可以适用缓和的职权法定原则。在现有下放依据中,经由默示权力理论的推定,《行政处罚法》等单行法可以为相关程序性权力的一并下放提供合法性依据,但难以为其他独立行政执法权的下放提供依据。基于同位保留理论,行政法规、地方性立法下放由自身创设的执法权具有合法性,下放非由自身创设的执法权则不具备合法性。目录清单等可以作为具体行政事务划分之依据,但不能作为职权划分之依据。基于法制统一性与修法便捷性等考量,宜在行政组织法中对行政执法权下放作统一规定。基于兼容授权主体权威性、中立性与下放行为专业性、灵活性之考量,对于行政执法权下放,宜在《地方组织法》规定中采纳“法律授权—地方性法规规定—行政决定实施”的规范结构。The delegation of administrative enforcement powers,as a territorial management reform initiative,should be grounded in the constitutional“Principles of Two Initiatives”and adhere to the principle of statutory authorization.This statutory authority can be categorized into two types:those applied under normal circumstances and those applied during periods of reform.In a reform context,a more flexible approach to statutory authority may be applied.Within the existing legal framework for delegation,the presumption of implied authority theory allows specific laws,such as the Law of the People’s Republic of China on Administrative Penalty,to provide legal grounds for the concurrent delegation of related procedural powers.However,these laws struggle to justify the delegation of other independent administrative enforcement powers.The theory of same-rank reservation supports the legitimacy of devolving enforcement powers created by administrative regulations and local legislation,while the delegation of enforcement powers not originating from these sources lacks legal standing.Non-regulatory documents,including working guidelines and empowerment lists,can serve as a basis for dividing specific administrative tasks but are insufficient for the allocation of official powers.To ensure legal uniformity and facilitate efficient amendments,it is advisable to establish unified provisions for the delegation of administrative enforcement powers within administrative organization law.Balancing the authority and neutrality of the empowering entity with the need for professionalism and flexibility in the delegation process,it is recommended that the Organization Law for Local People’s Congresses and Local People’s Governments adopt a regulatory structure of“legal authorization—provisions in local regulations—implementation by administrative decision”for the delegation of administrative enforcement powers.

关 键 词：综合行政执法改革 职权法定 默示权力 同位保留 

分 类 号：DF38[政治法律—宪法学与行政法学]