应急越级行政的法治建构

《突发事件应对法》关于"必要时可以越级上报"的规定、各类应急信息网络直报系统等越级行政实践是应急行政中的行政法新机制。相对于科层制下的层级行政而言,越级行政本质上是为突破层级之间的逐级限制,实现跨级别扁平化行政的方式。应急越级行政难以实行的主要原因在于科层结构的影响及越级行政规范细则的缺失。作为一项例外但必要的制度,应急越级行政亟待条件、内容与效果上的约束和体制基础与具体机制上的保障。在约束层面,应急越级行政需满足"属地政府难以应对危机"与"经批准"等实体和程序条件的限制、客观事实和审慎主观判断的内容限定及报告不豁免其他职责的效果约束。在保障层面,应急越级行政实效保障的基础在于,根据应急法秩序的要求,科层行政的刚性结构在越级行政时被局部悬置。应急越级行政实效保障的具体举措包括越级行政实体与程序内容的规范化、越级行政合法性追认与责任豁免程序的构建、越级行政形式的多样化等。

Construction of the Rule of Law on Leapfrog Administrative Emergency Response

The regulation of" report without regard to the levels when necessary" in the Emergency Response Law, and such skip-level administration practices as direct report systems of various emergency information network are the new mechanisms of administrative law in emergency administration. Compared with hierarchical administration in bureaucracy, skip-level administration is essentially to break through hierarchical limits and achieve flat administration across administrative levels. In general, the difficulties in implementing emergency skip-level administration are due to the impact of bureaucratic structure and the absence of relavant rules and regulations. As an exceptional yet necessary system, emergency skiplevel administration should be imposed constraints in conditions, content and effects, and provided with guarantee of institutional basis and specific mechanisms. At the constraint level, it is subject to physical and procedural conditions such as" the territorial government has difficulty responding to the crisis" and" with approval", objective facts and prudent subjective judgments, and no exemption from other responsibilities because of reporting. At the protection level, the basis of ensuring the actual effectiveness of emergency skip-level administration is that, according to the requirements of emergency legal order, the rigid structure of bureaucratic administration is partially suspended in skip-level administration. To ensure the effectiveness of emergency skip-level administration, efforts should be made to standardize the content of skip-level administration entities and procedures, ratify the legality of skip-level administration, construct liability exemption procedures, and diversify skip-level administration forms.