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法律和现实之间的缺口是行政裁量存在的重要原因,行政官员的“经济人”本性要求通过规则对行政裁量进行控制。由于立法者有限理性等原因,严格法治主义早就破产。司法控制存在适用范围有限、具有明显的滞后性、成本较高以及司法过程本身无法避免裁量行为等缺陷。这些使得行政控制模式兴起,裁量基准受到重视。裁量基准有利于限制裁量空间、增加裁量的可预见性、减少社会资本的影响和实现个案正义,却可能引起裁量僵化等问题带来的成本。为了充分发挥裁量基准的积极作用并减少其负面影响,应一般性地肯定裁量基准的对内效力.设立基准逃逸说明理由制度以发挥行政机关的主观能动性并通过司法审查确定其对外效力。
The gap between law and reality is an important reason for the existence of administrative discretion. The “economic man” nature of administrative officials requires that administrative discretion be controlled through rules. Due to the limited rationality of legislators and other reasons, strict legalism has long been bankrupt. The existence of judicial control is limited in scope, with obvious lag, high cost and the judicial process itself can not avoid the discrepancies and other defects. These make the pattern of administrative control rise, and the benchmark of discretion is taken seriously. The discretionary benchmarks are conducive to limiting the discretionary space, increasing the predictability of discretion, reducing the impact of social capital and realizing the justice of the case, but may cause the cost of the problem of rigidities of discretion. In order to give full play to the positive role of the discretionary benchmark and reduce its negative impact, we should generally affirm the internal effect of the discretionary benchmarks, set up the benchmark justification system to exert the subjective initiative of administrative agencies and determine its external validity through judicial review.