对行政指导赔偿责任的几点思考

【摘要】《最高人民法院关于执行〈中华人民共和国行政诉讼法〉若干问题的解释》中规定“不具有强制力的行政指导行为”不在行政诉讼的受案范围,从法治发达国家的经验和我国的实践来看,这里的不具有强制力的行政指导行为是行政指导的一种类型,因而“具有强制力”的行政指导应纳入行政诉讼,同时这里的强制力要件也会成为某些类型的行政赔偿诉讼的要件。在赔偿之诉的启动前提上,出于对行政指导造成的损害进行补救主要是一个私益救济而非公法评价问题,行政指导赔偿之诉不应以确认违法为前提。在赔偿之诉的构成要件上,应当根据几种行政指导类型构成要件上的不同,进行分类处理。至于内部行政指导,虽然在是否纳入行政诉讼上尚有待研究,但在赔偿问题上,由于其与损害间的因果关系是确定无疑的,所以纳入到赔偿之诉是理所当然的。可以参照《中华人民共和国行政复议法》、《中华人民共和国公务员法》和国外有关经验,追究作出内部指导的上级机关的责任,以实现权责统一。
【关键词】行政指导;赔偿之诉;内部行政指导

【Abstract】Inthe“interpretationofanumberofissuesontheimplementationof‘AdministrativeProcedureLawofPeople’sRepublicofChina’bytheSupremePeople’sCourt”,“theAdministrativeGuidancewithoutlawenforcement”isnotinthescopeofacceptingcasesofadministrativelitigation.Fromthepracticeofourcountryandotheradvancedcountriesruledoflaw,wecanfindthat“theAdministrativeGuidancewithoutlawenforcement”isjustonetypeofAdministrativeGuidance.Thus“theAdministrativeGuidancewithenforcement”shouldbeincludedinthescopeofacceptingcasesofadministrativelitigation.Atthesametime,“enforcement”shouldbetheelementofthecompensationproceedingagainstcertaintypeofAdministrativeGuidance.BecausehowtoremedythedamagebytheAdministrativeGuidanceisanissueaboutprivateinterestratherthananissueaboutpublicevaluation,theconfirmationofillegalshouldnotbethepremiseofcompensationproceedings.Astothecomposingelementofthecompensationproceedings,weshouldcarryoutclassificationbasedonthecomposingelementofdifferenttypesofAdministrativeGuidance.AsforinternalAdministrativeGuidance,althoughwhetherornotputitintotheacceptingcasesofadministrativelitigationisstillaquestionneededtoresearch,initiateacompensationproceedingiswithoutanyquestionbecausethecausalrelationshipbetweentheactionandthedamageiswell-established.Inordertoaccomplishtheunificationofthepowerandresponsibility,Wecanreferto“theAdministrativeReviewLawofthePeople’sRepublicofChina”,“CivilServantLawofPeople’sRepublicofChina”andexperienceofforeigncountries,andletthehighauthoritywhomaketheinternaladministrativeguidanceassumeresponsibility.
【Keywords】AdministrativeGuidanceCompensationProceedingInternalAdministrativeGuidance