浙江社会科学

行政复议法规定了规范性文件审查制度，但该制度在实践中呈现出当事人申请意愿低、复议机关抵触情绪大、对规范性文件的监督效果差等诸多问题。上述问题产生的直接原因包括审查主体定位不当、审查标准与行政诉讼趋同、审查机制与审查后果不匹配等，而根本原因则在于该制度的功能定位偏离了行政复议制度的功能定位。根据行政复议法，复议规范性文件审查的首要功能是预防和纠正不合法、不适当的规范性文件，而不是辅助行政争议的解决；同时，该制度还需兼顾保护当事人合法权益和保障行政机关依法行使职权的目标。这与行政诉讼中的规范性文件审查制度以及备案审查制度的功能定位存在明显差异。复议规范性文件审查制度的功能应当与复议制度的整体功能保持协同。以此为指引，复议规范性文件审查主体应被限缩解释为对规范性文件有监督权的上级机关，审查标准应被扩张解释为广义合法性审查标准，审查程序应在考虑有效监督规范性文件的基础上作平衡性设计。

The Administrative Reconsideration Law provides for a system of review of normative documents,but the practice of this system presents many problems,as manifested in the low willingness of the parties to apply,the strong resistance of the review authorities,and the poor effect of the supervision of normative documents. The direct causes of the gap between the objectives and actual outcomes of the administrative reconsideration normative document review system mainly stem from inappropriate positioning of reviewing entities,convergence of review standards with administrative litigation,mismatch between review mechanism setup and review consequences. The fundamental reason lies in the misalignment of the functional positioning of this system with that of the administrative reconsideration system. According to the provisions of the Administrative Reconsideration Law regarding legislative objectives and basic principles,the primary function of the normative document review system in administrative reconsideration is to prevent and rectify illegal and inappropriate administrative normative documents,rather than assisting in the resolution of specific administrative disputes. Simultaneously,the system needs to balance the protection of the legitimate rights of parties involved and the goal of ensuring that administrative authorities exercise their powers in accordance with the law. The above-mentioned objectives differ significantly from the positioning of normative document review systems in administrative litigation and record review systems. In the reconsideration system,normative document review,in terms of function,should be coordinated with the overall function of the reconsideration system. Following this principle,the reviewing entity of normative documents in reconsideration should be narrowly interpreted as the superior authority with supervisory powers over normative documents. The review standards should be broadly interpreted as a comprehensive legality review standard,and the review process should be designed with targeted balance,considering effective supervision of normative documents.