论行政协议的范围——兼评《关于审理行政协议案件若干问题的规定》第1条、第2条

最高人民法院近期颁布了《关于审理行政协议案件若干问题的规定》,该司法解释界定了行政协议的概念和范围。从具体内容来看,解释对行政协议的概念界定过于模糊和宽泛,不当扩张了行政协议的范围,主体标准、目的标准和行政法上的权利义务关系等标准均难以成为行政协议的认定标准,应以非市场行为性作为识别行政协议的关键要素。同时,该解释所列举的矿业权等国有自然资源使用权出让协议以及政府投资的保障性住房的租赁、买卖等协议本质上属于市场行为,应为民事合同的范畴。该解释扩张了行政协议的范围,不符合行政协议非市场行为性的本质属性,不符合物权法等相关立法的规定,也不利于相关纠纷的解决。因此,应从合同法规则的可适用性、交易安全与交易效率以及维护契约严肃性等角度再行考量行政协议的概念与范围,以更好地实现行政协议的应有功能与作用,充分保障各方主体的合法权益。

The Scope of Administrative Agreement——Also on Article 1 and Article 2 of Provisions on Several Issues Concerning the Trial of Administrative Agreement Cases

The Supreme People’s Court recently promulgated the Provisions on Several Issues Concerning the Trial of Administrative Agreement Cases,which explain the concept and specific scope of administrative agreements.But the specific content of the Provisions shows that this judicial interpretation gives too vague and broad definition to,and inappropriately expanded the scope of,administrative agreements.As a result,it is difficult for such standards as subject standards,objective standards,and rights and obligations in administrative law to be applied in the identification of administrative agreements.Non-market behaviors should be taken as the key element of administrative agreement identification.In fact,agreements on the transfer of mining right,the right to the use of other state-owned natural resource,and government-invested affordable housing leases are essentially market behaviors and should belong to the category of civil contracts.The expansion of the scope of administrative agreements by the interpretation is neither in conformity with the non-market behavioral nature of administrative agreements or the relevant laws and regulations,nor conducive to the settlement of related agreement disputes.Therefore,the concept and scope of administrative agreements should be reconsidered from the perspectives of applicability of rules of contract law,transaction safety and transaction efficiency,and maintenance of the seriousness of contracts,in order to better realize the due functions and role of administrative agreements and fully protect the rights of all parties to administrative contracts.