行政信访处理纠纷的预设模式检讨

《信访条例》将行政信访定位为诉讼、行政复议和仲裁的补充渠道,承袭这些机制处理纠纷的核心技术,预设了处理信访事项的"规范一决定"裁决模式。经检验,该模式预设与行政信访处理争议的制度效能不足具有明显相关性。实践中,行政信访处理的事项,多属"利益分配、调整型决策"和"抽象法律、政策目标落实"引发的争议。此两类事项通常缺乏具体的指引规则,该模式易被作为回绝信访诉求的制度庇护。即便进行裁量处理,裁决机制也因"利益分配、调整型"决策具有"多中心任务"特征而难以适用,对于要求充分实现法律或政策目标的诉求,裁决机制难以提供有效的救济方案。

A Review of the Pre-set Dispute-Resolution Model of the Administrative Letter-and-Visit System

The Regulations on Complaint Letters and Visits, by positioning the administrative letter-and-visit system as a supplement to litigation, arbitration, administrative reconsideration and other statutory remedies with the same core dispute-resolution techniques as these remedies, pre-set a "norm-decision" mode of adjudication. Whether this pre-set model is directly related to the low institutional efficiency of dispute resolution of administrative letter-and-visit system is a question that can be answered only through examination. An examination of the objects of this model, namely the matters for which administrative letter-and-visit system actually has residual jurisdiction relative to the statutory remedies, indicates that there is indeed an apparent correlation between the two. In practice, matters dealt with by the administrative letter-and-visit system are mostly disputes arising from "decision-makings on the distribution and adjustments of benefits" and "implementation of abstract legal or policy objectives". Since there is usually no specific guiding rule for the resolution of these kinds of disputes, this model tends to be used as an institutional "asylum" for the rejection of petitioners'' claims. Even such petitions are accepted, it is still difficult to apply this model because of the "polycentric task" nature of "decision-makings on distribution and adjustments of benefits". It is also hard to provide an effective remedy scheme for claims for the full realization of the objectives of laws and policies.