“依权责清单行政”的法理反思与适用限度

论文总字数：22711字

摘 要

在全面依法治国的背景下，“依权责清单行政”理论的一系列问题都亟需给予法治回应。本文结合我国31个省级政府公布的规范性文件以及学界现有相关观点，指明“依权责清单行政”的法律表达当前在概念方面尚存的明确性不足的问题。以权力清单和责任清单的性质研究为基础，围绕权责清单概念的不明确性，指明该法律表达在性质上存在的模糊性问题。此外，从权责清单的编制主体，编制程序的正当性以及权责清单在实践中的实际效用出发，论证得出“依权责清单行政”目前在规范效力的合宪性上尚有所欠缺。

在对上述问题分析总结的基础上，对于当前实践中所存在的权责清单定位僭越法律的现象，本文认为其实质上违背了依法行政的基本原则。法律效力高于权责清单效力的底线是毋庸置疑的，同样，“依权责清单行政”无法替代“依法行政”。但两者并不必然冲突，通过合理的制度构建，在适当的适用空间内权责清单可以与法律和平共存，例如通过“各级人大常委会提前介入备案审查”的方法补正其编制主体的正当性就不失为一种可行之策。

关键词：权责清单 依法行政 编制主体

ABSTRACT

In the context of comprehensively governing the country according to law, a series of problems in the theory of “administration according to powers and responsibilities” urgently need to respond to the rule of law. This paper combines the normative documents promulgated by 31 provincial governments in China and the existing relevant viewpoints in the academic circles, and points out that the law of “administration according to the powers and responsibilities list” expresses the problem of insufficient clarity in the current concept. Based on the study of the nature of the power list and the list of responsibilities, and focusing on the ambiguity of the concept of powers and responsibilities, the ambiguity of the expression of the law is indicated. In addition, starting from the main body of the list of powers and responsibilities, the legitimacy of the preparation procedure and the practical utility of the list of powers and responsibilities in practice, it is argued that the “administration of powers and responsibilities list” is still lacking in the constitutionality of normative effectiveness. .

On the basis of analyzing and summarizing the above problems, this paper believes that it is contrary to the basic principles of administration according to law in view of the fact that the list of powers and responsibilities existing in the current practice is located in the law. The bottom line of the effectiveness of the law over the effectiveness of the list of powers and responsibilities is unquestionable. Similarly, the “administration of powers and responsibilities” cannot replace “administration according to law”. However, the two do not necessarily conflict. Through reasonable system construction, the list of powers and responsibilities can coexist peacefully with the law in the appropriate applicable space. For example, through the method of “the NPC Standing Committee intervenes in the record review” to correct the legitimacy of its main body. It is a feasible strategy.

Keywords: list of rights and responsibilities administration by law preparation of subjects

目 录

摘 要 ……………………………………………………………………………………… Ⅰ

Abstract ……………………………………………………………………………………… Ⅱ

1. 绪论……………………………………………………………………………………… 1

二、“依权责清单行政”概念的明确性 …………………………………………………… 2

（一）权责清单概念的提出………………………………………………………………… 2

（二）权责清单概念在实践中的应用……………………………………………………… 3

1.权责清单概念的模糊性………………………………………………………………… 3

2.权责清单不是独立的概念范畴………………………………………………………… 4

三、“依权责清单行政”性质的模糊性 …………………………………………………… 5

（一）权力清单与责任清单性质辨析 ………………………………………………………5

1.权力清单的性质辨析 ……………………………………………………………………5

2.责任清单的性质辨析 ……………………………………………………………………6

（二）“依权责清单行政”性质难以界定 ………………………………………………… 7

四、“依权责清单行政”规范效力的合宪性 ……………………………………………… 7

（一）权责清单的编制主体合宪性存疑 ……………………………………………………8

（二）权责清单的规范效力及权力配置合宪性存疑……………………………………… 9

1.权责清单的规范效力合宪性存疑 ………………………………………………………9

2.权责清单的权力配置合宪性存疑 ………………………………………………………9

五、“依权责清单行政”的适用空间及其限度………………………………………………10

（一）“依权责清单行政”无法替代“依法行政”…………………………………………10

1.权责清单的编制不属于立法或者准立法活动………………………………………… 10

2.权责清单的编制过程缺乏民意的参与与监督………………………………………… 11

（二）权责清单编制主体的正当性补正的必要性及其方法……………………………… 11

六、结语 ………………………………………………………………………………………12

参考文献 ………………………………………………………………………………………14

致谢 ……………………………………………………………………………………………16

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