行政立法程序调整对象重考——关于外部效果规范与程序性装置关系的考察

我国目前的行政立法程序制度是以明确行政过程环节内部责任的方式调整行政法规和规章这些具有法的外形规范的制定过程,因此其无法将实质上同样具有外部效果的各类以"无名规范"方式表现的行政规定纳入调整的范围之内,因而也就不能建立起具有权利性质的参与制度。对此,本文在归纳我国行政立法程序制度的现状及问题,并与日本新近的同类立法例进行比较研究的基础上,以国家行政机关系统与其外部的社会成员之间关系的"内在"和"外向"的角度进行分析,总结和构建能够分析现代行政立法程序制度应有调整对象的基本框架,指出在现代国家中的行政立法程序已经成为一种裁量过程的情况下,行政立法程序制度建设需要将包括"无名规范"在内的所有法规范都同样地纳入调整的对象范围之中,并在程序过程中相应地设置保障社会成员提供可以行使参与权的程序性装置。

A Re-consideration on the Object of Administrative Legislative Process

China's existing administrative legislative process tries to regulate the legislative process of those norms with the form of law such as administrative regulations and rules,so it can not regulate the mak- ing process of those norms which have the substance of law,and therefore it can not establish a participating system with a right nature.On this base,this article makes a comparative analysis with Japanese similar leg- islation and points out that modem construction of administrative legislation process system should regulate the making process of all legal norms and safeguard social members'participating right to those process cor- respondingly.