公共企事業單位信息公開的審查之道：基於108件司法裁判的分析

Judicial Review of Openness of Public Enterprises and Institution:Survey of 108 Judgments

考察2011-2018年間108份公共企事業單位信息公開行政案件裁判可以發現，我國法院在適用修訂前的《政府信息公開條例》第37條過程中，圍繞“誰是公共企事業單位”和“信息應否公開”兩大問題，就“參照執行”的主體和方式已發展出頗為系統、精細的審查邏輯，並在很大程度上推翻了以往研究所提出的“階段漸進論”“主體類同－職能類同”和“形式主義－實質主義”模式等識別公共企事業單位的學說，以及用以判定信息應否公開的“最少存留適用”規則。但既存審查邏輯也存在值得進一步完善之處。在修訂後的《政府信息公開條例》實施過程中，更為理想的審查思路是：認定公共企事業單位時，應擴大形式性依據的參考範圍，借鑒正在進行的事業單位和國有企業分類改革對相關組織的業務職能做實質性考量；判斷信息應否公開時，不應從正面要求信息被列舉為公開項目，而應從反面考察信息是否屬於實體性或程序性的公開例外。 A survey of 108 judgements on openness of public enterprises and institutions between 2011 and 2018 yields the following findings: in the course of applying Article 37 of the Open Government Information Regulations, the Chinese courts have developed rather systematic and nuanced jurisprudence on the identification of public enterprises and institutions and the determination of disclosure and non-disclosure. Such practical jurisprudence has to a large extent overturned a series of theories proposed by previous research, including the principle of maximalist application. Nevertheless, the current judicial approach is not immune to further improvement. A better approach is that when identifying public enterprises and institutions we shall consult more broadly for formalistic legal basis, and make reference to the ongoing reforms of these organizations for substantial categorization; when determining whether certain information shall be disclosed, we shall not expect such information to be listed as items for disclosure, but shall check if it falls in the exception to the rule of transparency.