行政覆議與訴訟中的規章：定位區分、立法邏輯與適用展開

Administrative Review and Litigation Rules: Location Differentiation, Legislative Logic and Applicable Expansion

《行政覆議法》和《行政訴訟法》分別將規章定位為“審理依據”和“審理參照”，這種定位差異是由規章在我國規範體系中的“尷尬”位置所導致的。從立法邏輯來看，行政訴訟是司法權的行使，行政覆議是行政權的行使，司法權與行政權的性質、關係以及行政權的內部關係，決定了這種區分的必要性，而立法的妥協性使得這種區分僅限於規章，不包括行政法規和規範性文件。然而，從法律適用的邏輯來看，在《立法法》關於法律規範位階規定的限制下，行政訴訟中“參照規章”和“依據行政法規”之間在“拒絕適用”上並沒有本質區別，二者區分的實質在於合法性假定程度和審查強度的不同。為了與行政訴訟中的法律適用規則相銜接，行政覆議機關同樣需要根據法律規範位階進行法律適用。基於行政權的內部關係，應當參照《行政覆議法》對於規範性文件的合法性處理機制對行政規章進行相應處理。

The ''Administrative Reconsideration Law'' and the ''Administrative Litigation Law'' position administrative rules as ''trial basis'' and ''trial reference'' respectively. This difference in positioning is caused by the ''awkward'' position of regulations in Chinese normative system. From the perspective of legislative logic, administrative litigation is the exercise of judicial power, and administrative reconsideration is the exercise of administrative power. The nature and relationship between judicial power and administrative power, as well as the internal relationship between administrative power, determine the necessity of this distinction, and the compromise nature of legislation makes this distinction limited to administrative rules, excluding administrative regulations and normative documents. However, from the perspective of the logic of legal application, under the restrictions of the Legislation Law on the hierarchy of legal norms, there is no essential difference in ''refusal to apply'' between ''referring to rules'' and ''according to administrative regulations'' in administrative litigation, the essence of the difference between the two lies in the difference in the degree of legality assumption and intensity of review. In order to connect with the rules of legal application in administrative litigation, the administrative reconsideration organ also needs to apply the law according to the level of legal norms. Based on the internal relationship of administrative power, administrative rules should be handled accordingly with reference to the legality processing mechanism of normative documents in the Administrative Reconsideration Law.