作者：刘启川
作者介绍：东南大学法学院教授
出版日期：2025年4月9日
内容提要 通过对权责清单制度实施以来涉及行政裁判文书的实证考察，可以发现行政相对人、行政机关和法院在适用主动性、适用方式、适用目的及适用效果上出现态度迥异等情形，实际运行效果并不理想，这与“权责清单制度的基础性制度效用”功能预设和价值目标相差甚远。化解该问题的逻辑起点在于明确权责清单的法律性质和制度功能。在我国法治体系中，权责清单隶属于内部行政规范性文件，但其法律效果具有外溢性。在功能定位上，行政相对人可以藉由权责清单的规范性实现权利保护；行政机关应当恪守权责清单的自制性；法院应当就权责清单的规范性进行回应。因此，未来应当尊重行政相对人无条件适用权责清单，行政机关应当补正权责清单“正确性效力”并予以法治化适用，法院应当从基本理念、审查或援引规则、工作衔接机制等方面构建司法回应型体系，由此，在推进中国式现代化进程中进一步实现权责清单制度提质增效。
关键词 权责清单 权力清单 责任清单 制度效用 提质增效
Abstract: Through the empirical study of the administrative judgments involved in the implementation of the power and responsibility list, it can be found that there are obvious differences among the administrative counterparts, administrative authorities, and courts in the application initiative, application methods, application purposes, and application effects. The actual operation of the power and responsibility list has not been satisfactory, which is far from the functional preset and value target of ‘fully leveraging the foundational role of the system of the power and responsibility list’. The logical starting point for resolving this issue lies in clarifying the legal nature and institutional function of the power and responsibility list. In China’s legal system, the power and responsibility list is categorized as an internal administrative normative document, but its legal effect is spillover. In terms of its functional positioning, administrative counterparts can resort to the normativity of the power and responsibility list; administrative authorities shall adhere to the self-control of the power and responsibility list; and courts shall respond to the normativity of the power and responsibility list. In the future, the unconditional application of the power and responsibility list by administrative counterparts should be respected; administrative authorities should supplement the ‘correctness of the validity’ of the power and responsibility list; and courts should construct a judicial response system from the aspects of reshaping the basic concept, reviewing or invoking rules, and work coordination mechanism, thereby further improving the quality and efficiency of the system of the power and responsibility list in the process of promoting Chinese modernization.