確認訴訟與行政規範審查：德國與我國制度發展的比較研究

Claims for Declaratory Judgment and Pre-enforcement Review of Regulations: A Comparative Study of German and Taiwan's Institutional Development

現代管制國家藉由行政規範管制社會秩序早已不可避免。個人並非行政規範操弄的純粹客體，若其權利受到違法或無效行政規範的侵害，行政法院必須給予有效的權利保護。在我國現行行政訴訟體制下，能否以確認訴訟作為補遺訴訟類型，對規範不法進行審查，成為有效權利保護的一項核心課題。目前我國實務僅有三個案例肯定藉由確認訴訟審查直接形成公法上法律關係的自我執行規範，學說對此仍欠缺系統性的研究。行政法院判決迄今仍無預防性不作為訴訟勝訴案件，甚至有判決否認預防性確認訴訟的容許性。當自我執行規範設定行為或不行為要件，違反者將受到刑罰或行政制裁，若仍要求個人循事後權利救濟，實危如累卵。自W. Jellinek首倡確認訴訟作為規範審查的訴訟類型以來，德國學說與實務經歷近百年的演變。本文透過對德國制度的分析，解明確認訴訟乃對抗規範不法的有效利器，在比較法的基礎之上，指出我國現有實務與學說運用確認訴訟對規範不法尋求權利救濟的不足，並提出改進建議。

Modern regulatory states inevitably control social order by administrative norms. However, individuals are not pure manipulative objects of administrative norms. If their rights are violated by illegal or invalid administrative norms, the administrative court must grant effective remedy. Under Taiwan's current system of administrative litigation, one of the core issues is, if claims for declaratory judgment can be lodged as pre-enforcement review of regulations. Hitherto, only three decisions of administrative court confirmed pre-enforcement review of self-executing norms. Systematic legal writing in this regard is still lacking. So far no motion on preventive claims was granted, one decision even denied the admissibility of preventive claims for declaratory judgment. When the self-executing norms set requirements for action or inaction, violation of which will be subject to penalties or administrative sanctions, requiring individuals to seek relief afterwards is tantamount to hanging the sword of Damocles over his head. Since W. Jellinek initiated claims for declaratory judgment as pre-enforcement review of regulations, theories and practice have experienced evolution for nearly a hundred years. Through the analysis of the German system, this paper highlights claims for declaratory judgment as effective tool against normative wrongs. On the basis of comparative law, the author points out Taiwan's deficits to implement pre-enforcement review of regulations, and make some recommendations for improvement.