美国法上的行政协议及其启示_兼与何渊博士商榷

:1001-2397(2010)01-0179-07:2009-11-02:(1973-),,,高秦伟(中央财经大学法学院,北京100081):行政协议是现代行政领域解决跨部门与跨地区行政合作问题而出现的新形式,为世界各国所采用;但其法律性质是什么,各国理论界与实务界的观点并不太一致美国对行政协议的关注旨在探究行政协议的本质及其制定如何能够合法,而中国则侧重于强调其契约性,并未对行政协议的内容进行程序性规制那种认为行政协议就是行政契约的观点值得商榷,该观点并未全面揭示行政协议的本质,这对于从法律上规制行政协议,使其充分发挥功效是不利的:行政协议;行政契约;规则制定;行政立法:DF07:ADOI:10.3969/.jissn.1001-2397.2010.01.17,!(administrativeagreement),[1](LettersofUnderstandingorMemorandaofUnderstanding),;(inter-agency),,∀#(theAdministrativeProceduresAc,tAPA),,,[2],,,∀#,,,,∀#(∀#),,,,17920101321ModernLawScienceJan.,2010Vol32No.1![3],,,,,,,,∃(),,,9000,3300[4],,!,,1530%(theFoodandDrugAdministration,FDA)(theUnitedStatesDepartmentofAgriculture,USDA)[5]21,,,[6],,&&,,![7],![8],,USDAFDA(EPA)(theNationalMarineFisheriesService,NMFS)471[9]13(24),()1998,21∀#(theTransportationEquityAct)!(theRailroadRehabilitationandImprovementFinancingProgram,RRIF),(DOT)35[10]()(OMB)2000623(RRIF),,,∋,,,:RRIF?,?,∀#!?,?(()∀#!:180现代法学∃%∋(,:∀#,∀#20065,Ins.tOfMed.,Nat)lResearchCounci,lEnsuringSafeFood:FromProductiontoConsumption85(1998),availableat=6163&pape=R1,lastvisitedJuly23,2008.,,SeeJohnM.Scheib,AdministrativeAgreements:ShouldTheybeintheShadowsoftheAdministrativeProceduresAct?,55Admin.L.Rev.477,480(2003).SeeAlanizv.OfficeofPers.Mgmt.,728F.2d1460,1470(Fed.Cir.1984)(∀#).,;;,!∃(statement)[11]RRIF∀#,,[12]∀#,,∀#;,,;,∀#[13],∀#,[14],[15],[16](),∀#,[17],,!;(),,,,,AmericanMiningCongressv.MineSafetyandHealthAdministration,4[18]4:(1),!,;(2)∀#,∀#;(3),;(4)()APAAPA!,RRIF;![19],APA[20],RRIFAPA,()APA?,APA,,APA,∀#,,APA,,,APA,,APA181高秦伟:美国法上的行政协议及其启示兼与何渊博士商榷∃5U.S.C.A∗551(4)(2000).!(rule),seeFrederickSchauer,ABriefNoteontheLogicofRules,withSpecialReferencetoBowenv.GeorgetownUniversityHospita,l42Admin.L.Rev.447(1990);Strauss,TheRulemakingContinuum,41DukeL.J.1463(1992).!(rulemaking)(regulation)!Fuchs,ProcedureinAdministrativeRulemaking,52Harv.L.Rev.259,265(1938).,,[21],,∀#15-16,,,!,∀#,,()!,4:1.,,,∃2.(),,[22]3.,,[23]4.,;,,,[24],!,(),,,!,,,,,!,![25],,,,,,()∀#,,,,,∀#()!!,∀#:,,,∀#!,,182现代法学∃∀#,:∀#,∀()#,20046:,!,∀#,![26],,;,[27],,,,,,∀#,!!,,!!,[28],,,,,,[29],,,,[30],,[31],,,,,,,,,,![32]∀#,,,,,∀#∀#,∀#,;,,[33][34][35],,!,[36],,∀#,,,,,[37],,,∀#,,183高秦伟:美国法上的行政协议及其启示兼与何渊博士商榷,,APA,,∀#;,,,,,,,!,,,,,,,∀#,,,,,,,,![38],,,,,,ML:[1]JohnM.Scheib,AdministrativeAgreements:ShouldTheybeintheShadowsoftheAdministrativeProceduresAct?,55Admin.L.Rev.477,478(2003).[2]RichardJ.Pierce,Jr.,DistinguishingLegislativeRulesFromInterpretativeRules,52Admin.L.Rev.547,547(2000).[3].[J].,2006,(3).[4]U.S.Gen.AccountingOffice,GAO/T-RCED-99-256,FoodSafety:U.S.NeedsASingleAgencytoAdministeraUnified,Risk-BasedInspectionSystem4(1999).[5]StuartM.Papeeta.l,FoodSecurityWouldBeCompromisedbyCombiningtheFoodandDrugAdministrationandtheU.S.DepartmentofAgricultureintoaSingleFoodAgency,59Food&DrugL.J.405,405(2004).[6]U.S.Gen.AccountingOffice,GAO-05-212,FoodSafety:ExperiencesofSevenCountriesinConsolidationTheirFoodSafetySystems13(2005).[7]TimothyM.Hammonds,ItIsTimeToDesignateaSingleFoodSafetyAgency,59Food&DrugL.J.427,428(2004).[8].[G]//..(1).:,2008:53-78.[9]U.S.Gen.AccountabilityOffice,GAO-05-549T,OverseeingtheU.S.FoodSupply:StepsShouldbeTakentoReduceOverlappingInspectionsandRelatedActivities,13(2005).[10]TransportationEquityActforthe21stCentury,Pub.L.No.105-178,∗502(a),112Stat.473(1998).[11]Louisianav.UnitedStates,656F.Supp.1310,1319n.18(W.D.La.1986);Nat)lTreasuryEmployeesUnionv.Reagan,685F.Supp.1346,1356(E.D.La.1988).[12]JohnM.Scheib,AdministrativeAgreements:ShouldTheybeintheShadowsoftheAdministrativeProceduresAct?,55Admin.L.Rev.477,483(2003).[13]5U.S.C.∗553(b)(2000);5U.S.C.∗553(c)(2000);5U.S.C.∗552(a)(1)(D)(2000).[14]5U.S.C.∗553(b)(3)(A)-(B)(2000).[15]5U.S.C.∗553(a)(1)(2000)[16]5U.S.C.∗553(a)(2)(2000)[17]RobertA.Anthony,InterpretiveRules,PolicyStatements,Guidances,Manuals,andtheLike-ShouldFederalAgenciesUseThemtoBindthePublic?,41DukeL.184现代法学J.1311,1323-27(1992).[18]995F.2d1106,1112(D.C.Cir.1993).[19]ArthurEarlBonfield,PublicParticipationinFederalRulemakingRelatedtoPublicProperty,Loans,Grants,Benefits,orContracts,118U.Pa.L.Rev.540,563(1970).[20]Indep.U.S.TankerOwnersComm.v.Lewis,690F.2d908,918n.43(D.C.Cir.1982).[21].[J].,2007,(2).[22].[J].,1998,(1).[23].[D]..2007:6;.[J].,2007,(2).[24],.[J].,2009,(1).[25].[M].:,2007:293.[26].:[J].,2008,(1).[27].[M].:,1996:120.[28].[M]//..:,2004:972.[29]+,.I[M].,.:,2008:163.[30].[M].:,1996:258.[31].[D].,2007:23-25.[32].[G]//..:,2004:995.[33].[J].,2008,(4).[34].[D].,2005:10.[35].[J].,2008,(9).[36].:[J].,2008,(1).[37].[J].,2007,(2).[38].[M].,.:,1999:37.AdministrativeAgreementandItsImplicationinAmericanLawConsultingwithMr.HeYuanGAOQinwei(LawSchooloftheCentralUniversityofFinanceandEconomics,Beijing100081,China)Abstract:Administrativeagreemen,tanewlydevisedwaytosolvetheissuesconcerningtransdepartmentortransregionalcooperationinmodernadministrativefield,hasbeenadoptedbymanycountries.However,opinionsofacademicsandpractitionersindifferentcountriesdifferastotheimplicationofadministrativeagreementinlaw.WhatAmericanscholarsareintereste