“控权—平衡—保权”理论探讨及其行政法制建构
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摘要
行政法理论基础问题关系到行政法理论研究发展以及行
政法治实践运行方方面面，近年来成为行政法学界讨论的焦
点。人们相继提出了管理论、控权论、平衡论主张，但由于
它们各种缺陷，这种争论始终未走出“诸说之争”的“乱
局”，从而达成共识。本文在反思以往诸论基础上，结合行
政法治现实，提出新的理论构想以及制度建构的建议。全文
分为三个部分：
第一部分，对现存各论的反思。本章首先评析了管理
论，指出其不能作为行政法理论基础来定位。其次，细析了
控权论，指出了控权论的片面性。再次，思考了平衡论思
想，指出平衡论同样不能以行政法理论基础身份构筑行政法
理论体系的原因。最后指出其它主张均可分别归之与以上三
论，已有的各种理论主张均不能胜任行政法理论基础这一定
位。
第二部分，“控权——平衡——保权”主张的提出和确
证。本章首先指出控权是行政法的第一要义和首要本质，平
衡应作为行政法理论价值追求目标，权利保障是行政法理论
归宿，从而将行政法理论基础总结为：以控权为其理论基
调，以平衡为基本目标，以权利保障为其理论归宿。概之以
“控权——平衡——保权。”并对三者之间的递进性予以分
析，指出这种行政理论基础，内部关系具有递进性。之后对
“控权——平衡——保权”论存在价值进行了论证，认为：
其自身具有的时空兼容性，使之能对行政法作出全时空的阐
释，这种主张的提出适应了中国行政法治现实的客观需要，
其存在具有现实必然性。
第三部分，主要行政法律制度的建构。本章首先指出建
立在不同理论基础上的行政法律制度具有不同的构筑和运行”D
逻辑。以“控权一平衡一保权”三段式主张为理论基础
的行政法律制度也必然以这种理论为指导予以构建。其次，
作者论述了行政立法制度引进利益平衡机制的必要性，并对
这种利益平衡型行政立法制度进行了具体设计。再次，作者
提出以程序控制自由裁量权较之实体控制更具有效性，并进
而说明了现代行政程序法律制度应具有的主要内容。之后，
作者分析了司法审查的必要性及其有限性，指出基于保护相
对人权利的需要，我国应借鉴英美司法审查制经验，逐步放
宽司法审查范围，真正确定对公民权利的保护体制。
The theoretical basis of administrative laws question
affects the development of the administrative law theory and
every aspect of the future enforcement of administrative law.
Many theories such as Administration Theory, Power Control
Theory and Balance Theory etc, but because all of them have
their own shortcoming, the attempts to reconcile these have so
far been unsuccessful. In this article, taking as the basis the
past theories, and taking into account the present situation of
the administrative law, the author puts forward new theoretical
propositions, and new legal structure. The article consists of
three parts:
Party 1, Discussion to the present theories:
The author analyzes the Administration theory, and
concludes that it can抰 be taken as theoretical basis of
administrative law. Further, the author analyzes the power
control theory, arid points out the one-sideness of the theory.
Then, the author discusses at length the balance theory, and
shows why the balance theory can抰 be used as the
administrative law抯 basis to build the administrative law抯
theoretical system. Finally, the author indicated that the other
theories out of these can be concluded in the three theories, the
existing theory can抰 be used the administrative law抯
theoretical basis.
Part 2, The proposing and verifying of the Power control
theory桞alance theory梡ower protect theory. The author
said the power control theory is the primary essence of
administrative law, the balance theory should be the goal of the
a worthy administrative law抯 theory, the power protect theory
is the theoretical aim of the administrative law. Summarizing,
the administrative law basis can be concluded as: The
theoretical fundamental key is the power control theory, the
basic purpose is the balance, the theoretical destination is
power security, that is: Power controlling Balance ?Power
security. The author has made a step by step analysis of the
three elements, and indicated that there is a progressive relation
within the administratiVe law抯 theoretical basis. After that, the
author expounded and proved the existence worth of power
control ?balance梡ower protect, the author agrees that: The
administrative law is little effected by time and space, this
makes the author give a whole time and space explanation, the
proposing of that theory can meet the objective needs of
China抯 administrative law抯 present situation, its existence is
necessitted by facts.
Part 3, Structuring of the main administrative law system.
In this chapter, the author shows that the administrative law
systems forming the basis of different law systems have their
differing structures and operating logic, the administrative law
system with the theoretical basis of power control ?balance ?
power protecting will also be constructed according to the
principles of this theory. Then, the author explained the
necessity of benefits balance system in the setting up of the
administrative laws, and its design benefits the adoption of
balance style administrative law system. Then, the author says
the procedure control of the judgment will be more effective
for the entity control of judgment, and explained the main
contents of the modem administrative legal procedure system.
Later, the author analyzes the necessity and limitation of the
judicial examination, indicates that, for on the protection of
relative human rights, our country should draw lessons from
American and British judicial examination system, broaden the
area of judicial examination, to establish a protection system
for the rights of citizens.
政法治实践运行方方面面，近年来成为行政法学界讨论的焦
点。人们相继提出了管理论、控权论、平衡论主张，但由于
它们各种缺陷，这种争论始终未走出“诸说之争”的“乱
局”，从而达成共识。本文在反思以往诸论基础上，结合行
政法治现实，提出新的理论构想以及制度建构的建议。全文
分为三个部分：
第一部分，对现存各论的反思。本章首先评析了管理
论，指出其不能作为行政法理论基础来定位。其次，细析了
控权论，指出了控权论的片面性。再次，思考了平衡论思
想，指出平衡论同样不能以行政法理论基础身份构筑行政法
理论体系的原因。最后指出其它主张均可分别归之与以上三
论，已有的各种理论主张均不能胜任行政法理论基础这一定
位。
第二部分，“控权——平衡——保权”主张的提出和确
证。本章首先指出控权是行政法的第一要义和首要本质，平
衡应作为行政法理论价值追求目标，权利保障是行政法理论
归宿，从而将行政法理论基础总结为：以控权为其理论基
调，以平衡为基本目标，以权利保障为其理论归宿。概之以
“控权——平衡——保权。”并对三者之间的递进性予以分
析，指出这种行政理论基础，内部关系具有递进性。之后对
“控权——平衡——保权”论存在价值进行了论证，认为：
其自身具有的时空兼容性，使之能对行政法作出全时空的阐
释，这种主张的提出适应了中国行政法治现实的客观需要，
其存在具有现实必然性。
第三部分，主要行政法律制度的建构。本章首先指出建
立在不同理论基础上的行政法律制度具有不同的构筑和运行”D
逻辑。以“控权一平衡一保权”三段式主张为理论基础
的行政法律制度也必然以这种理论为指导予以构建。其次，
作者论述了行政立法制度引进利益平衡机制的必要性，并对
这种利益平衡型行政立法制度进行了具体设计。再次，作者
提出以程序控制自由裁量权较之实体控制更具有效性，并进
而说明了现代行政程序法律制度应具有的主要内容。之后，
作者分析了司法审查的必要性及其有限性，指出基于保护相
对人权利的需要，我国应借鉴英美司法审查制经验，逐步放
宽司法审查范围，真正确定对公民权利的保护体制。
The theoretical basis of administrative laws question
affects the development of the administrative law theory and
every aspect of the future enforcement of administrative law.
Many theories such as Administration Theory, Power Control
Theory and Balance Theory etc, but because all of them have
their own shortcoming, the attempts to reconcile these have so
far been unsuccessful. In this article, taking as the basis the
past theories, and taking into account the present situation of
the administrative law, the author puts forward new theoretical
propositions, and new legal structure. The article consists of
three parts:
Party 1, Discussion to the present theories:
The author analyzes the Administration theory, and
concludes that it can抰 be taken as theoretical basis of
administrative law. Further, the author analyzes the power
control theory, arid points out the one-sideness of the theory.
Then, the author discusses at length the balance theory, and
shows why the balance theory can抰 be used as the
administrative law抯 basis to build the administrative law抯
theoretical system. Finally, the author indicated that the other
theories out of these can be concluded in the three theories, the
existing theory can抰 be used the administrative law抯
theoretical basis.
Part 2, The proposing and verifying of the Power control
theory桞alance theory梡ower protect theory. The author
said the power control theory is the primary essence of
administrative law, the balance theory should be the goal of the
a worthy administrative law抯 theory, the power protect theory
is the theoretical aim of the administrative law. Summarizing,
the administrative law basis can be concluded as: The
theoretical fundamental key is the power control theory, the
basic purpose is the balance, the theoretical destination is
power security, that is: Power controlling Balance ?Power
security. The author has made a step by step analysis of the
three elements, and indicated that there is a progressive relation
within the administratiVe law抯 theoretical basis. After that, the
author expounded and proved the existence worth of power
control ?balance梡ower protect, the author agrees that: The
administrative law is little effected by time and space, this
makes the author give a whole time and space explanation, the
proposing of that theory can meet the objective needs of
China抯 administrative law抯 present situation, its existence is
necessitted by facts.
Part 3, Structuring of the main administrative law system.
In this chapter, the author shows that the administrative law
systems forming the basis of different law systems have their
differing structures and operating logic, the administrative law
system with the theoretical basis of power control ?balance ?
power protecting will also be constructed according to the
principles of this theory. Then, the author explained the
necessity of benefits balance system in the setting up of the
administrative laws, and its design benefits the adoption of
balance style administrative law system. Then, the author says
the procedure control of the judgment will be more effective
for the entity control of judgment, and explained the main
contents of the modem administrative legal procedure system.
Later, the author analyzes the necessity and limitation of the
judicial examination, indicates that, for on the protection of
relative human rights, our country should draw lessons from
American and British judicial examination system, broaden the
area of judicial examination, to establish a protection system
for the rights of citizens.
引文
〔1〕胡建淼《行政法学》北京法律出版社 1997年版
〔2〕王连昌《行政法学》中国政法大学出版社 1994年版
〔3〕(美)施瓦茨《美国法律史》王军等译 中国政法大学出版社 1990年第1版
〔4〕王名杨《英国行政法》 中国政法大学出版社 1987年第1版
〔5〕王名杨《美国行政法》 中国法制出版社 1995年版
〔6〕(日)室井力主编《日本现代行政法》吴微译 中国政法大学出版社 1995年版
〔7〕(德)毛雷尔(H.Maurer)著：《行政法学总论》高家伟译 北京法律出版社 2000年版
〔1〕杨解君《关于行政法理论基础若干观点的评析》、《中国法学》1996年2期
〔2〕罗豪才、甘雯《行政法的“平衡”及“平衡论”范畴》、《中国法学》1996年第4期
〔3〕参见罗豪才等《现代行政法的理论基础》、《中国法学》1993年第1期
〔4〕周佑勇 《行政法理论基础诸说的反思、整合与定位》、《法律科学》1999年第2期
〔2〕王连昌《行政法学》中国政法大学出版社 1994年版
〔3〕(美)施瓦茨《美国法律史》王军等译 中国政法大学出版社 1990年第1版
〔4〕王名杨《英国行政法》 中国政法大学出版社 1987年第1版
〔5〕王名杨《美国行政法》 中国法制出版社 1995年版
〔6〕(日)室井力主编《日本现代行政法》吴微译 中国政法大学出版社 1995年版
〔7〕(德)毛雷尔(H.Maurer)著：《行政法学总论》高家伟译 北京法律出版社 2000年版
〔1〕杨解君《关于行政法理论基础若干观点的评析》、《中国法学》1996年2期
〔2〕罗豪才、甘雯《行政法的“平衡”及“平衡论”范畴》、《中国法学》1996年第4期
〔3〕参见罗豪才等《现代行政法的理论基础》、《中国法学》1993年第1期
〔4〕周佑勇 《行政法理论基础诸说的反思、整合与定位》、《法律科学》1999年第2期