作者：何海波
作者介绍：清华大学法学院教授
出版日期：2021年6月9日
内容提要 2014 年《行政诉讼法》修改，法院对规范性文件的“一并审查”写入法律， 但实施中成效不彰，理解上多有分歧。文章论证，一并审查不是一种独立的诉讼类型，而只是 法院为正确审理行政案件所做的附带审查。法院对被诉行政行为所依据的行政规范性文件， 应当予以“主动、全面、审慎、适度”的审查。具体地说，法院有义务依职权主动审查，以确定 相关规范性文件在该案中能否适用，不必以原告申请为前提；审查对象包括被诉行政行为实 际依据的规范性文件的相关条款，不管它是否被行政决定书援引；为审慎起见，法院可以考虑 提级审理、审委会审理等方式，给予文件制定机关、检察机关、社会组织和专家参与诉讼的机 会；对规范性文件合法性审查的标准应当严守职权法定原则，程序问题宜于适用“严重违法” 标准，实体裁量可以适用“明显不当”标准。
关键词 行政诉讼法 规范性文件 附带审查 一并审查 合法性审查
Abstract: Regulatory documents, or‘normative documents’by literal translation, play an important role in China’s administrative law. While suing a regulatory document is still not allowed, collateral review of regulatory documents on which a specific administrative act is based has been conformed with the amendment of Administrative Litigation Law in 2014. However, the effectiveness of the amendment is not satisfactory. In this article, the author argues that: (1) the court shall take the initiative to review the relevant documents, even if the plaintiff does not apply for such a review; (2) the court shall review the relevant provisions of any kind of regulatory documents, including those made by the Party organizations; (3) the court shall adopt a more deliberate process in reviewing, e.g., promoting the level of court jurisdiction and admitting more concerned parties into the process; (4) the court shall have the power to review the reasonableness of the document and disapply an obviously unreasonable one.