行政复议调解适用范围的界定——以新《行政复议法》第5条为中心

Defining the Scope of Administrative Review Mediation—Focusing on Article 5 of the New “Administrative Review Law”

摘要: 为了发挥调解实质化解行政争议的优势，新《行政复议法》将行政复议调解作为原则写入总则部分。但调解的无序扩张会导致法律法规被策略性地解读，最终消解规则的规范作用。因而有必要回到规范本身对行政复议的调解范围予以体系重构。根据该法第5条的规定，不得损害国家利益、社会公共利益和他人合法权益，不得违反法律、法规的强制性规定以及调解的自愿原则本身就构成了对行政复议调解排除适用的概括性规定。在此基础上并结合地方经验，应当对行政复议调解适用的范围以类型化的方式予以明确，以便更好地指导实践。具体而言，应当将行政机关基于自由裁量权作出的行政行为；行政赔偿及行政补偿案件；行政协议案件；行政裁决、行政确权案件；行政不作为案件；案件事实认定或法律适用困难以及涉及土地征收、征用、出让等社会影响较大案件纳入行政复议调解适用范围。但合法行政行为不属于行政机关管辖的事项；滥用职权行为严重违反法定程序以及无效的行政行为则应当排除适用行政复议调解。

Abstract: In order to fully utilize the advantages of mediation in resolving administrative disputes, the new Administrative Review Law has incorporated mediation as a principle in the general provisions. However, the unchecked expansion of mediation could lead to the strategic reinterpretation of laws and regulations, ultimately undermining the normative function of these rules. Therefore, it is necessary to reconstruct the scope of mediation in administrative review in line with the norms themselves. According to Article 5 of the law, mediation must not harm national interests, public social interests, or the legitimate rights and interests of others. It must also not violate mandatory legal provisions or the voluntary nature of mediation, which in itself forms a general provision excluding certain applications of mediation in administrative review. Based on this and considering local experiences, the scope of mediation in administrative review should be clearly defined in a typological manner to better guide practice. Specifically, the following cases should fall within the scope of administrative review mediation: administrative actions based on discretionary authority by administrative agencies; cases involving administrative compensation and administrative indemnity; administrative agreement cases; administrative rulings, administrative confirmation of rights cases; administrative inaction cases; cases with difficulties in factual determination or legal application; and cases with significant social impact such as land requisition, expropriation, and transfer. However, legal administrative actions, matters outside the jurisdiction of administrative agencies, abuse of power, serious procedural violations, and invalid administrative actions should be excluded from the application of mediation in administrative review.