双被告制度的检视与重构——基于《行政复议法》的修订背景

双被告制度创设伊始是"解决行政复议现实问题的中药",实际却"制约行政复议改革",如此反差值得深思。2020年《中华人民共和国行政复议法（修订）（征求意见稿）》对程序标的和复议决定效力的改变否定了双被告制度,应值此契机进行制度检视。为纠正维持率过高,基于"复议决定可诉"和"一体化理论"构建,双被告制度具有强烈问题导向性,存有降低维持率有限、实践中附带影响大、理论内在冲突等弊病。应取消双被告制度并围绕行政复议新时代功能定位就复议队伍和监督体系进行重构,助力行政复议法治愿景实现。

Inspection and Reconstruction of Double Defendants System

Double defendants system was created initially as "Chinese medicine for solving the practical problems of administrative reconsideration", which has actually becomes the obstacle for "reform of administrative reconsideration ". The contradictory result deserves our deep reflection. The changes of procedure target and reconsidered determination effect in the new Administrative Reconsideration Law have negated the double defendants system, which should go through the institutional inspection now. The double defendants system was constructed for correction of high "maintenance rate", and on the basis of "reconsidered determination appealability" and "unified theory", which is a problem-oriented system, where there are some drawbacks such as limited maintenance rate decreasing, strong collateral influence in the practice and the inner contradiction in the theory. Therefore, the double defendants system should be canceled. The reconsideration team and the supervision system should be reconstructed according to the function orientation in the new era, so as to realize the law-ruled administrative reconsideration.