作者：江国华
作者介绍：武汉大学法学院教授
出版日期：2025年4月9日
内容提要 行政决定保全是行政机关向人民法院提起的以保障行政决定或未来生效裁判实现为意旨的临时性保护制度。行政决定保全目标的实现方式是通过限制行政相对人或利害关系人处分财产或强制其为或不为特定行为以防止不可弥补的损害发生。如果说行政决定所维护和创造的公共价值是行政决定保全的价值基础，那么强制执行权去行政化的制度化建构则构成了其制度基础，而行政决定执行权配置的非充分性则是其规范基础。从行政决定保全的适用情形上看，行政机关可以提起诉中保全和非诉强制执行保全，但是不可以申请诉前保全，然而实践中却存在着误用和混用等现象。在裁定是否准予保全时，法院应当首先进行必要性审查，再分情形审查诉中财产保全、诉中行为保全、非诉强制执行保全的要件。随着行政保全案例的增加，有必要健全《行政诉讼法》《行政强制法》中的行政保全规范，并出台“行政决定保全”专门审查规范。
关键词 行政决定保全 强制执行权 诉中保全 非诉强制执行保全 司法审查
Abstract: The preservation of administrative decision is an interim measure initiated by the administrative organ to the people’s court to safeguard the implementation of administrative decisions or future effective judgments. The objective of the preservation of administrative decision is achieved by restricting administrative counterparties or interested parties from disposing of property or compelling them to do or not to do particular acts to prevent irreparable damage. If the public value maintained and created by administrative decision is the value foundation for the preservation of administrative decision, the institutionalized construction of the de-administration of the enforcement power of administrative decision constitutes its institutional foundation, while the non-sufficiency of the configuration of the execution power of administrative decision is its normative foundation. From the perspective of the application of the preservation of administrative decision, the administrative organ can initiate preservation during litigation and non-litigation enforcement, but cannot apply for pre-litigation preservation. However, in practice, there are phenomena such as misuse and mixing. In deciding whether to grant preservation, the court shall first conduct a necessity review, and then respectively review the elements of property preservation in litigation, conduct preservation in litigation, and non-litigation enforcement preservation. With the increase in the number of administrative preservation cases, it is necessary to improve the administrative preservation norms in the Administrative Procedure Law and the Administrative Enforcement Law and to introduce specialized review norms for the preservation of administrative decision.