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| Notice of the Supreme People's Court on Regulating the Cause of Action of Administrative Cases | | 最高人民法院关于规范行政案件案由的通知 |
(No. 2 [2004] of the Supreme People's Court) | |
（法发[2004]2号） |
The higher people's courts of all provinces, autonomous regions, and municipalities directly under the Central Government, and the Production and Construction Army Corps Branch of the Higher People's Court of Sinkiang Uygur Autonomous Region: | |
各省、自治区、直辖市高级人民法院，新疆维吾尔自治区高级人民法院生产建设兵团分院： |
Since the Administrative Litigation Law | |
行政诉讼法实施以来，各地法院行政案件案由的确定和表述不尽一致，有些法院在这方面作了积极的探索，积累了一些经验。为规范行政案件案由，根据《中华人民共和国行政诉讼法》等法律的规定和行政案件的特点，结合行政审判实践经验，现就有关行政案件案由问题提出如下意见，请各级人民法院试行： |
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| I. Components of the Cause of Action of an Administrative Case and the Way of Determining the Cause of Action | | 一、行政案件案由的构成要素和确定方法 |
The causes of action of administrative cases may be divided into: cases of the act class, cases of the omission class, and cases of the administrative compensation class. The ways of determination are as follows: | |
行政案件的案由分为：作为类案件、不作为类案件、行政赔偿类案件。其确定方法如下： |
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| (1) Components of the cause of action of a case of the act class and the way of determining the cause of action | | (一)作为类案件案由的构成要素和确定方法 |
The basic way to determine the cause of action of a case of the act class is to classify the cases, and to construct the cause of action by considering the scope of administration as the “class”, and the type of the specific administrative act as the “category”. The structure of the cause of action of a case shall contain the following two factors: | |
确定作为类案件案由的基本方法是划分案件的类别，以行政管理范围为“类”，以具体行政行为种类为“别”进行构造。案由的结构应当具备以下两个要素： |
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| 1. The scope of administration. The scope of administration shall mean the field of the administrative affairs managed by administrative subjects on behalf of the State. The scope of administration shall be considered as the first factor of the cause of action of an administrative case, and the administrative cases shall be primarily divided into “public security”, “industry and commerce”, “taxation” and other administrative disputes, which are distinguished by class. | | 1．行政管理范围。行政管理范围是指行政主体代表国家管理行政事务的领域。以行政管理范围作为行政案件案由的第一个要素，将行政案件初步分为“公安”、“工商”、“税务”等行政纠纷，从类上区别开来。 |
Generally, the scope of administration shall be considered as the first component of the cause of action of a case. It does not need to be further divided after the primary division. For example, customs, family planning, taxation, etc. may be directly indicated as the first component of the cause of action of a case. With respect to the exceptional field in which the scope of administration is extensive, such as public security administration, it may be detailed into public security administration, fire prevention administration, etc., and the terms “public security” and “fire prevention”, etc. may be considered as the terms of the first component of the specific scope of administration which may be detailed or disintegrated. Whether the scope needs to be disintegrated shall be based on the actual situation of the case, and the principle of being concise and clear. | |
一般情况下，以行政管理范围作为案由的第一构成要素，分类后无需再作分解，如海关、计划生育、税务等，直接以“海关”、“计划生育”、“税务”作为案由第一构成要素；对个别行政管理范围比较宽泛的领域，如公安行政管理，可细分为治安管理、消防管理等，可以细化、分解后的具体管理范围，将“治安”、“消防”等作为第一构成要素用语。是否分解，应当结合案件实际，以表述简洁、清楚为原则。 |
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| 2. Type of the specific administrative act. The type or nature of the specific administrative act, such as “administrative penalty”, “administrative license”, “administrative confirmation”, etc., shall be considered as the second component of the cause of action of the case. The manifesting form of a specific administrative act, such as fine or detention, etc. within the scope of administrative penalties shall not appear in the form of component, but shall be represented by “administrative penalty”. | | 2．具体行政行为种类。以具体行政行为的种类或性质，如“行政处罚”、“行政许可”、“行政确认”等，作为案由的第二个构成要素。具体行政行为的表现形式，如行政处罚中的罚款、拘留等，不以构成要素出现，而均以“行政处罚”代之。 |
By colligating the abovementioned two factors, we may state the structure of the cause of action of an administrative case of the act class as: scope of administration + type of the specific administrative act. Taking lawsuit against the penalty of administrative detention imposed by a public security organ as an example, the cause of action of the case shall be determined as: “administrative penalty of public security”. “Public security” is the specific public security administration under the scope of administration of public security; while “administrative penalty” is the type of the specific administrative act, and is not described with the specific form of penalty, i.e., “detention”. Taking the act committed by the customs on confiscation of smuggled articles as an example, the cause of action of the case shall be determined as “customs administrative penalty”. The scope of customs administration is relatively narrow, and does not need to be further divided. Therefore, “customs” may be directly considered as the first component. | |
综合上述两个要素，行政作为类案件案由的结构为：管理范围＋具体行政行为种类。以诉公安机关所作的行政拘留处罚为例，案由应确定为：“治安行政处罚”。“治安”为公安行政管理范围之下具体的治安管理；“行政处罚”则是具体行政行为的种类，不用具体的处罚形式“拘留”进行表述。以海关作出没收走私物品的行为为例，其案由应确定为“海关行政处罚”。海关管理范围相对窄一些，无需再作分解，可直接以“海关”作为第一构成要素。 |
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| (2) Components of the cause of action of a case of the omission class and the way of determining the cause of action | | (二)不作为类案件案由的构成要素和确定方法 |
In general, the structure of the two components of the abovementioned case of the act class shall still be applicable to the cause of action of a case of the omission class, but meanwhile the characteristic of a case in this class shall be embodied. The way of determination shall be: the “lawsuit” shall be deemed as the first component of the cause of action of a case in this class; the category of the administrative subject shall be deemed as the second component, such as “administrative organ for industry and commerce”, “the customs”, etc.; and the failure to perform a certain administrative duty or obligation shall be deemed as the third component. For example, for a case in which a public security organ does not perform the legal duty of protecting personal right, the cause of action of the case shall be determined as the “lawsuit against the public security organ due to failure to perform the legal duty of protecting personal right”. In terms of “performance of certain legal duty”, the required specific duty shall be determined in light of the specific situation of the case. Specifically, the causes of action may be divided into the “lawsuit against ______ (administrative subject) due to failure to perform the legal duty of protecting personal right (property right)”, the “lawsuit against ______ (administrative subject) due to failure to perform the obligation under the administrative contract”, and the “lawsuit against ______ (house administration organ, etc.) due to failure to perform the legal duty of registration”, etc.
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不作为类案件的案由，原则上仍适用上述作为类案件的两种构成要素的结构，但又要体现此类案件的特色，其确定方法是：以“诉”作为此类案件案由的第一个构成要素；以行政主体的类别作为第二个构成要素，如“工商行政管理机关”、“海关”等；以不履行特定行政职责或义务作为第三个构成要素。以公安机关不履行保护人身权法定职责案为例，案由确定为“诉公安机关不履行保护人身权法定职责”。“履行……法定职责”中要求履行的是何种职责，应当根据案件的具体情况确定，如可以具体区分为“诉××(行政主体)不履行保护人身权(财产权)法定职责”、“诉××(行政主体)不履行行政合同义务”、“诉××(房屋管理机关等)不履行登记法定职责”等等。
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