論覆議機關做被告與做共同被告的不同價值功能

覆議機關因維持原行政機關的行政行為而與原行政機關成為共同被告，是我國《行政訴訟法》修訂後的新規定，意在“倒逼”覆議機關依法積極、負責地開展覆議工作。但這只考慮了覆議機關做“被告”的價值功能，沒有反映出覆議機關做“共同被告”的價值功能。覆議機關在做共同被告時既是被告也是共同被告，故其制度設計要能兼顧兩種價值功能。不同類型共同被告的價值功能各有重點：因同一行政行為產生的共同被告，其價值功能主要在於方便法院查明兩個以上被告共同作出同一個行政行為的案件事實，公平認定和劃分它們應分擔的法律責任；因同類行政行為產生的共同被告，其價值功能主要在於對兩個以上被告分別作出的同類行政行為併案審理，以達成簡化程式、節省訴訟成本的目的。覆議機關對原行政行為作出維持決定，本質上是對其予以肯定性評價的同類行政行為，由此形成的共同被告案件在審理上應以原行政行為為主，對覆議維持決定可實行附帶審查並探索書面審理的方式，以簡化程式、減少法院司法成本和覆議機關應訴成本的耗費。

Under China s amended Administrative Ligitation Law, the reconsideration agency becomes a co-defendant with the original administrative organ when it maintains the administrative actions of the original administrative organ. The underlying intention is to activate the function of administrative reconsideration to resolve administrative disputes. However, this only considers the value and function of the reconsideration agency as a ''defendant'' , but fails to reflect the value and function of the reconsideration agency as a ''co-defendant. '' The reconsideration agency can both be the defendant and the co-defendant when making the co-defendant, so the system design must take into account the two functions. The function of the co-defendants has different focuses in different types of co-defendants: the co-defendants arising from the same administrative act have their function mainly in facilitating the court to ascertain the facts of the case where two or more defendants jointly make the same administrative act. The co-defendants arising from similar administrative actions, their value function mainly lies in the trial of similar administrative actions made by two or more defendants in order to achieve the purpose of simplifying procedure, solving multiple administrative disputes and saving litigation costs. The reconsideration agency makes a maintenance decision on the original administrative act with independent legal effect. Essentially, it is the same kind of administrative act that relies on the original administrative act and affirmatively evaluates it. The co-defendant case formed by this should be the original in the trial. The administrative act is the main one. The review of the reconsideration decision can be carried out with an attached review and explore the way of written trial, so as to simplify the procedure, reduce the judicial cost of the court and the cost of the reconsideration agency s costs.