论开发区管理机构行政诉讼被告资格的判定标准

On the Criteria for Determining the Qualification of Development Zone Management Agencies as Defendants in Administrative Litigation

摘要: 随着经济的不断发展，各地开发区在社会行政管理中都占据着一定的地位，开发区管理机构能否作为行政诉讼中的被告也成了实践中经常遇见的问题。即便2018年《最高人民法院关于〈适用中华人民共和国行政诉讼法〉的解释》第21条采用双重判定标准即行政级别标准和行政主体标准对开发区管理机构的被告资格进行判定，填补了开发区管理机构被告资格认定的空白，但也引发了诸如行政级别标准缺乏合法性支撑、行政主体与行政诉讼主体概念混同、识别其他开发区管理机构及其所属职能部门被告资格标准不一等问题。本文从规范文本和行政审判实践出发寻根究底，建议明晰开发区管理机构的法律主体地位，进一步完善开发区法律体系，并对现行的《最高人民法院关于〈适用中华人民共和国行政诉讼法〉的解释》第21条进行恰当取舍，以期构建合法合理的开发区管理机构行政诉讼被告资格判定标准。

Abstract: With the continuous development of the economy, development zones across various regions occupy a certain position in social and administrative management. Whether the management agencies of development zones can be defendants in administrative litigation has become a frequently encountered issue in practice. Even though Article 21 of the 2018 Interpretation of the Supreme People’s Court on the Application of the Administrative Litigation Law of the People’s Republic of China adopts a dual determination standard, namely the administrative level standard and the administrative subject standard, to determine the defendant qualification of development zone management agencies, filling the gap in the recognition of the defendant qualification of development zone management agencies, it has also triggered issues such as the lack of legitimacy support for the administrative level standard, confusion between the concepts of administrative subject and administrative litigation subject, and inconsistent standards for identifying the defendant qualification of other development zone management agencies and their affiliated functional departments. This article delves into the root causes from normative texts and administrative trial practice, suggesting clarifying the legal subject status of development zone management agencies, further improving the legal system of development zones, and making appropriate adjustments to Article 21 of the current Interpretation of the Supreme People’s Court on the Application of the Administrative Litigation Law of the People’s Republic of China, with the aim of establishing a legitimate and reasonable standard for determining the defendant qualification of development zone management agencies in administrative litigation.