開啟行政訴訟，全樣本下的平政院立案史

平政院是中國歷史上第一個行政法院。過往平政院研究主要以裁決書為基礎，對起訴和受理階段諸多關鍵環節尚乏關注。通過系統整理中國第二歷史檔案館藏未刊檔案，可以全面展示行政訴訟案件中民眾的訴訟、官署的應對、平政院的起訴審查三個面相。與成說不同，民眾並非“不知行政訴訟”或“畏官”，其表現堪稱活躍，但所訴多數並非行政案件，與受案範圍不符而遭駁回;訴願前置程序並未有效分流案件，民眾因訴願機關拖延決定，無奈向平政院求援，反使平政院深受其累;評事基於現實考量，對起訴條件設置較高門檻，力圖縮減受案規模。以上數端，最終形成平政院十四年間“十案裁一”的局面。平政院作為中國行政訴訟的首次嘗試，客觀上發揮了保障人民權利、限制行政權力之功，亦為南京國民政府時期制度之改良提供了必要的經驗。

The Ping-Cheng-Yuan was the first administrative court in Chinese history. Previous research on the Ping-Cheng-Yuan has primarily focused on its decisions, with little attention paid to critical stages such as the filing and acceptance of lawsuits. By systematically organizing unpublished archival materials housed in the Second Historical Archives of China, it becomes possible to present a comprehensive picture of three key aspects of administrative litigation cases: the litigation efforts of the populace, the responses of government offices, and the case review process undertaken by the Ping-Cheng-Yuan. Contrary to conventional views, the populace was neither“ignorant of administrative litigation”nor excessively“fearful of officials”; on the contrary, their engagement was remarkably active. However, most petitions filed did not fall within the scope of administrative cases and were therefore rejected. The requirement for prior petitioning failed to effectively divert cases, and due to delays by petition-handling agencies, citizens were often compelled to seek relief from the Ping-Cheng-Yuan, thereby burdening it further. In response, adjudicators, motivated by practical considerations, imposed high thresholds for accepting cases in an effort to limit the court's caseload. These factors together resulted in the phenomenon that, over fourteen years, the Ping-Cheng-Yuan issued only one ruling for every ten cases filed. As the first attempt at administrative adjudication in China, the Ping-Cheng-Yuan played an important role in protecting citizens' rights and constraining administrative power, while also providing necessary lessons for the institutional reforms pursued during the period of the Nationalist Government in Nanjing.