法治视野中的行政指导行为——论我国行政指导的合法性问题与法治化路径

行政指导是行政民主化潮流下日益广泛运用并逐渐类型化的一种现代行政管理行为方式,同时也是一个理论基础薄弱、实务问题甚多、法治程度不高的重大行政现象,应当按照现代行政法治的要求将其纳入法治化轨道。本文透过依法行政理念的演进轨迹从多个角度探讨了行政指导行为的合法性问题和法学理论背景,并以实证研究方式结合我国行政法律制度现实进一步讨论了行政指导与依法行政的关系,在此基础上分析了行政指导实践中存在的突出问题及其原因,并从观念更新、制度创新、完善立法、配套措施等方面提出了推动行政指导法治化的完善路径和具体对策,期能为正在进行中的我国行政指导程序立法和制度建构提供参考。

The Administrative Guidance Conduct In Legal View--On Legitimacy of Administrative Guidance and Way to Legalizing Administrative Guidance in China

The Administrative Guidance is not only a kind of modern administration patterns widely-used and gradually-typed in the democratization trend of administration, but also an important administrative phenomenon lacking in theoretical base, low in legalization and with many practical problems. So we should bring it into line with legalization according to the demand of the modern administration pursuant to law. This paper carefully inquires into the legitimacy of administrative guidance and its background theory of law through the conceptual development of administration, and then discusses the relationship between administrative guidance and administration pursuant to law based on positive research and the present administrative legal system in China. Furthermore, the paper analyzes some obvious problems in the practice of administrative guidance and their causes. Finally, some proposals are put forward to promote legalizing the action of administrative guidance, such as, updating concept, renewing system, perfecting legislation, completing measures, etc., so as to offer a reference for the being-in-progress legislation of the Administrative Procedure Law and other system construction.