论行政诉讼第三人

论行政诉讼第三人 一、行政诉讼第三人的理论分析 .............................................. 2 (一) 行政诉讼第三人的含义及设置的意义 ................................ 2 (二) 行政诉讼第三人的特点 ............................................ 3 (三) 行政诉讼第三人的种类 ............................................ 4 (四) 行政诉讼第三人的确定 ............................................ 5 1、反射利益说 ...................................................... 6 2、 保护规范说 ..................................................... 6 3、 行政第三人公权说 ............................................... 6 4、 事实利益保护说 ................................................. 6 5、利害关系的内涵 .................................................. 7 6、利害关系的分类 .................................................. 7 二、 现行的行政诉讼第三人的存在的问题 ................................. 8 (一)第三人资格认定不明确 ......................................... 8 (二)“利害关系”的规定不完善 .......................................... 8 (三)第三人的诉讼权利不确定 ........................................... 9 三、不同国家行政诉讼第三人制度的设置 ...................................... 9 (一)德国 ............................................................. 9 (二)我国台湾地区 ..................................................... 9 (三)日本 ............................................................ 10 (四)我国大陆地区 .................................................... 10 四、完善行政诉讼第三人制度的建议 ......................................... 10 (一)明确规定行政机关可以作为第三人参加诉讼 .......................... 10 (二)明确界定“利害关系”的概念 ...................................... 11 (三)明确规定行政诉讼第三人诉讼权利 .................................. 11 结束语 ................................................................... 12 one good, one not. (B) in order to tailor aid measures. After identification of the poor, to tailor aid measures of poverty for poverty alleviation. Focus on "five to the village to" infrastructure to the village to households and industry support to the household, education and training to the village to the village families, renovate rural village households, twinning support to village households. Through villages, analytical grasp of poverty causes door-to-door implementation support responsible, supporting projects and help to fund. According to deficiency what fill what principles, "should be agricultural is agricultural, and should be workers is workers, and should be tour is tour, and should be business is business", developed more precision of poverty programme, put "sent dish door" into let masses "see single order", ensure a households a this Taiwan account, and a households a poverty plans, and a households a helping measures, put poverty funds, and project, and material, implementation to specific village, and specific households, and specific people, real helped points Shang, and help to root Shang. File in the County, 11 out of poverty is presented here, some form of further stressed. In industry poverty aspects, to relies on I County of fruits and vegetables canned and honeysuckle two big industry, play agricultural processing enterprise in funds, and technology, and sales, and employment, aspects of advantage, through "enterprise + base + poor", mode, guide poverty village, and poor development quality forest fruit, and Chinese herbal medicines, and mushroom, and facilities vegetables, and flower seedlings, features industry, absorb poverty labor employment increase, effective increased poor business sex income and workers income, 论行政诉讼第三人 摘要:本文从行政诉讼第三人的概念出发，探讨行政诉讼第三人制度的产生的缘由，行政诉讼第三 人的特征和分类，并由此探讨行政诉讼第三人在司法实务操作中的确定问题，并试图通过对目前的行 政诉讼第三人制度中如何界定行政诉讼第三人及其在诉讼过程中的权利和义务提出立法和法律操作 上的一些建议。 Third Party In Administrative Proceedings Abstract: In this paper, according to the concept of third party in administrative proceedings We will discuss the source、characteristics and classifications of the third party in administrative proceedings in order to recognise the confirmation of the third party in administrative proceedings in the judicial practices. According to the current regulations on third party in administrative proceedings ,the paper provides some suggestions in the judgement of third party in administrative proceedings and in the definition of their obligations and rights. 关键词:行政诉讼第三人 利害关系 诉讼权利 一、行政诉讼第三人的理论分析 (一)行政诉讼第三人的含义及设置的意义 2002年3月10日起开始实施的《最高人民法院关于执行〈中华人民共和国行政诉讼 法〉若干问题的解释》第12条规定:“与具体行政行为有法律上利害关系的公民、法人 或者其他组织对该行政行为不服的，可以依法提起行政诉讼。”由于越来越多的行政法律 关系得以进入诉讼程序，所以越来越多的行政行为也成为司法审查的对象。由此，当公 民认为自己的权利受到行政机关的行政行为的损害时，可以向法院提起行政诉讼，寻求 司法上的救济。 为了更好的保护公民的权利，维护社会的公平正义，设计了行政诉讼第三人制度。 我国《行政诉讼法》第27条规定:“同提起诉讼的具体行为有利害关系的公民、法人或 其他组织，可以作为第三人申请参加诉讼，或者由法院通知参加诉讼。”根据该条的规定， 行政诉讼第三人是指与被诉的具体行政行为有利害关系，而不仅仅是指与正在诉讼的案 件的结果有利害关系，这一规定实际上扩大了当事人的范围。根据应松年教授在《行政 one good, one not. (B) in order to tailor aid measures. After identification of the poor, to tailor aid measures of poverty for poverty alleviation. Focus on "five to the village to" infrastructure to the village to households and industry support to the household, education and training to the village to the village families, renovate rural village households, twinning support to village households. Through villages, analytical grasp of poverty causes door-to-door implementation support responsible, supporting projects and help to fund. According to deficiency what fill what principles, "should be agricultural is agricultural, and should be workers is workers, and should be tour is tour, and should be business is business", developed more precision of poverty programme, put "sent dish door" into let masses "see single order", ensure a households a this Taiwan account, and a households a poverty plans, and a households a helping measures, put poverty funds, and project, and material, implementation to specific village, and specific households, and specific people, real helped points Shang, and help to root Shang. File in the County, 11 out of poverty is presented here, some form of further stressed. In industry poverty aspects, to relies on I County of fruits and vegetables canned and honeysuckle two big industry, play agricultural processing enterprise in funds, and technology, and sales, and employment, aspects of advantage, through "enterprise + base + poor", mode, guide poverty village, and poor development quality forest fruit, and Chinese herbal medicines, and mushroom, and facilities vegetables, and flower seedlings, features industry, absorb poverty labor employment increase, effective increased poor business sex income and workers income, 福建工程学院法学系毕业论文 诉讼法》中对行政诉讼第三人的解释，行政诉讼第三人是指因与被提起行政诉讼的具体行政行为有利害关系，通过申请或法院通知形式，参加到诉讼中来的除原告、被告以外的其他公民、法人或者其他组织。 第三人制度最早源于罗马法，罗马法规定公民对于他人正在诉讼的法律关系有利害关系的可以申请参加诉讼和上诉。设计第三人制度的目的在于更好的维护与法律关系有利害关系的其他主体的合法权利。司法的目的在于通过查清案件事实并正确的适用法律然后做出合理的裁判。在司法实务中，行政诉讼第三人参加诉讼的价值在于:第一，有利于保护第三方的合法权益，全面的查清案件事实，确定各方的权利义务关系，正确的解决纠纷，实现公正审判。根据《行政诉讼法》第27条，《最高人民法院关于执行<行政诉讼法>若干问题的解释》第24条、28条，《最高人民法院关于行政诉讼证据若干问题的规定》第7、23、29、44条的规定，通过赋予行政诉讼第三人参诉权、提出诉讼主张权、辩论权、举证权、委托代理人权、阅卷权、申请回避权和上诉权来维护第三人的权益，这些诉讼权利有助于法院查明事实，正确裁判。第二，第三人参与诉讼可以监督行政机关依法行政。第三人参与诉讼有助于查清事实，使司法权成为监督行政权的重要手段，也使行政权在行使的过程中更注重合法和合理。第三，第三人制度有利于司法资源的合理配置，通过避免第三人单独提起诉讼，及时审理案件，最大程度的节省审判资源，以达到合法高效准确审理行政案件的目的。 (二)行政诉讼第三人的特点 根据《行政诉讼法》关于行政诉讼第三人的规定，行政诉讼第三人具有以下特征: 第一，行政诉讼第三人是指参与到行政诉讼中的除原告和被告之外的与被诉具体行政行为有利害关系的公民、法人或其他组织。第三人在诉讼中的地位既不是原告也不是被告，之所以参与到正在进行的行政诉讼中是存在着与被诉的具体行政行为的利害关系。根据应松年教授的观点，第三人的根本特征在于是他与被诉行政行为有利害关系，或者与本诉结果有利害关系，这是他参加诉讼的根据，第三人参加诉讼的目的，根本在于维护第三人自身合法权益，再来也是为了全面查明案件事实和全面正确解决纠纷。 第二，行政诉讼第三人是参加到他人已经开始、尚未审理终结的诉讼中的公民、法人或者其他组织。第三人参加诉讼必须以原被告之间存在行政诉讼法律关系为前提，并且该诉讼正在进行中。行政诉讼第三人原本可以作为原告起诉，但是他并未起诉，所以只能通过参加之诉参与到其他主体的诉讼中，既然如此第三人必须在诉讼法律关系还存续期间加入。倘若原被告之间的诉讼尚未开始，或者原被告之间的诉讼已经审理终结， one good, one not. households a poverty plans, and a households a helping measures, put poverty funds, and project, and material, implementationpoverty programme, put "sent dish door" into let masses "see single order", ensure a households a this Taiwan account, and a ion ofral, and should be workers is workers, and should be tour is tour, and should be business is business", developed more precissupporting projects and help to fund. According to deficiency what fill what principles, "should be agricultural is agricultudoor implementation support responsible, -to-port to village households. Through villages, analytical grasp of poverty causes doorthe household, education and training to the village to the village families, renovate rural village households, twinning sup ion. Focus on "five to the village to" infrastructure to the village to households and industry support to(B) in order to tailor aid measures. After identification of the poor, to tailor aid measures of poverty for poverty alleviat3tures industry, absorb poverty labor employment increase, effective increased poor business sex income and workers income,opment quality forest fruit, and Chinese herbal medicines, and mushroom, and facilities vegetables, and flower seedlings, feadevel y, and sales, and employment, aspects of advantage, through "enterprise + base + poor", mode, guide poverty village, and poorruits and vegetables canned and honeysuckle two big industry, play agricultural processing enterprise in funds, and technology of fCounty, 11 out of poverty is presented here, some form of further stressed. In industry poverty aspects, to relies on I Countpecific village, and specific households, and specific people, real helped points Shang, and help to root Shang. File in the to s 第三人都不可能参加诉讼，也失去了行政诉讼第三人制度存在的意义。 第三，行政诉讼第三人在诉讼中有独立的诉讼地位。既然第三人参加诉讼的目的在于维护自身的合法权益，有自己独立的诉讼地位，独立于原告和被告，则法律通过赋予行政诉讼第三人提出诉讼主张权、发言权、辩论权、举证权委托代理人权、阅卷权、申请回避权，上诉权等权利来维护其合法权益，维护其独立的诉讼地位。 (三)行政诉讼第三人的种类 根据最高人民法院《关于贯彻执行〈中华人民共和国行政诉讼法〉若干问题的解释》第二十三条规定:“原告所起诉的被告不适格，人民法院应当告知原告变更被告;原告不同意变更的，裁定驳回起诉。应当追加被告而原告不同意追加的，人民法院应当通知其以第三人的身份参加诉讼。”第二十四条规定:“行政机关的同一具体行政行为涉及两个以上利害关系人，其中一部分利害关系人对具体行政行为不服提起诉讼，人民法院应当通知没有起诉的其他利害关系人作为第三人参加诉讼。第三人有权提出与本案有关的诉讼主张，对人民法院的一审判决不服，有权提起上诉。”根据应松年教授的观点行政诉讼第三人可以分为以下几类: 1、行政处罚案件中的受害人或者受到处罚的加害人(被处罚人)一方。在行政处罚的案件中，存在有受害人、被处罚人，如果被处罚人认为行政处罚不符合法律规定或者处罚过重而不服行政处罚行为而向法院提起诉讼，则受害人一方可以作为第三人参加诉讼;如果受害人一方认为行政处罚过轻而不服向法院提起行政诉讼，那么行政处罚的相对人，即被处罚方可以作为第三人参加诉讼。 2、行政处罚案件的共同被处罚人。在一个具体行政行为中，行政机关对两个或两个以上的违法行为人做出处罚，其中的一部分人作为原告向法院起诉，另一部分人没有起诉，这类情形类似于共同诉讼，但是由于部分被处罚人没有提起诉讼，为了维护行政行为的公平性和相对人的合法权益，其他被处罚人可以作为第三人参加诉讼。 3、行政确认纠纷案件中的被授权的人和被驳回申请的人 。公民、法人或者其他组织之间发生民事纠纷，依照法律规定有些必须经行政机关进行确权裁决，例如劳动工伤的认定、土地确权案件等等。在这些行政确认纠纷中，如果一方或者一部分当事人不服行政确认裁决向法院提起诉讼，则另一方或者其他的当事人可以作为行政诉讼的当事人参加诉讼。 4、征用土地或者房屋拆迁行政案件中的建设单位。在征用土地或者房屋拆迁行政案件中，由于建设单位在行政机关做出的征用或者拆迁这一具体行政行为中存在既得的合one good, one not. (B) in order to tailor aid measures. After identification of the poor, to tailor aid measures of poverty for poverty alleviation. Focus on "five to the village to" infrastructure to the village to households and industry support to the household, education and training to the village to the village families, renovate rural village households, twinning support to village households. Through villages, analytical grasp of poverty causes door-to-door implementation support responsible, supporting projects and help to fund. According to deficiency what fill what principles, "should be agricultural is agricultural, and should be workers is workers, and should be tour is tour, and should be business is business", developed more precision of poverty programme, put "sent dish door" into let masses "see single order", ensure a households a this Taiwan account, and a households a poverty plans, and a households a helping measures, put poverty funds, and project, and material, implementation to specific village, and specific households, and specific people, real helped points Shang, and help to root Shang. File in the County, 11 out of poverty is presented here, some form of further stressed. In industry poverty aspects, to relies on I County of fruits and vegetables canned and honeysuckle two big industry, play agricultural processing enterprise in funds, and technology, and sales, and employment, aspects of advantage, through "enterprise + base + poor", mode, guide poverty village, and poor development quality forest fruit, and Chinese herbal medicines, and mushroom, and facilities vegetables, and flower seedlings, features industry, absorb poverty labor employment increase, effective increased poor business sex income and workers income, 福建工程学院法学系毕业论文 法权益，存在法律上的利害关系，所以建设单位可以作为行政诉讼的第三人参与诉讼。 5、针对行政相对人的同一行为做出不同行政行为的行政机关，未作为被告的行政机关可以作为第三人。例如，甲机关给某一工厂颁发了排污许可证，另一机关却予以撤销，则在行政诉讼中未被列为被告的行政机关可以作为第三人。 6、与行政机关共同署名做出具体行政行为的非行政机关组织。即该组织不是行政主体，但是却与行政主体共同署名做出行政行为。依照行政诉讼法的规定，行政诉讼的被告只能是行政主体，非行政机关组织不是政主体自然不能作为行政诉讼的被告，但不能免除其与行政主体共同做出具体行政行为而给行政相对人造成损害的赔偿责任。例如，乡党委和县土地局共同做出的土地确认裁决，乡党委在行政诉讼中就应作为第三人参加行政诉讼。 7、应当追加为被告而原告不同意追加的，法院应通知其作为第三人参加诉讼。如果在一个行政案件中本应该有两个和两个以上的行政机关作为被告，原告只起诉了部分的行政机关，并且不同意追加其他的行政机关作为被告，那么这些行政机关应该作为第三人参加行政诉讼。 8、其他利害关系人。 (四)行政诉讼第三人的确定 正确界定行政诉讼第三人的范围是研究行政诉讼第三人制度的前提，是极具实践和理论意义的。在行政诉讼中正确判断第三人，保护第三人的诉讼权利和实体权益，是提高审判质量的一个重要课题，也是对被诉的具体行政行为进行合法性审查重要手段。由于行政诉讼法在我国的发展时间不长，并且行政诉讼脱胎于民事诉讼，对于行政诉讼第三人制度的研究仍是不全面的，对行政诉讼第三人在司法实践中应该如何确定也未形成一致的意见。再者行政诉讼法的规定比较宽泛，在实际操作中也存在模糊地带，给司法实践带来难度，也不利于公民合法权益的正确维护。于是正确认定第三人的资格显得尤为关键。 我国《行政诉讼法》第27条规定，同提起诉讼的具体行为有利害关系的其他公民、法人或者其他组织，可以作为第三人申请参加诉讼，或者由人民法院通知参加诉讼。行政诉讼第三人包括没有起诉的行政相对人、行政相关人和共同做出行政行为却没有被列为被告的行政主体。行政相对人和共同做出行政行为却没有被列为被告的行政主体在司法实务中因具备鲜明的主体特征更容易认定，所以行政诉讼第三人的认定关键就在于对行政相关人的认定，对第三人的认定也就是对是否存在利害关系的判断。 one good, one not. poverty programme, put "sent dish door" into let masses "see single order", ensure a households a this Taiwan account, and a ion ofral, and should be workers is workers, and should be tour is tour, and should be business is business", developed more precissupporting projects and help to fund. According to deficiency what fill what principles, "should be agricultural is agricultudoor implementation support responsible, -to-port to village households. Through villages, analytical grasp of poverty causes doorthe household, education and training to the village to the village families, renovate rural village households, twinning sup ion. Focus on "five to the village to" infrastructure to the village to households and industry support to(B) in order to tailor aid measures. After identification of the poor, to tailor aid measures of poverty for poverty alleviat5tures industry, absorb poverty labor employment increase, effective increased poor business sex income and workers income,opment quality forest fruit, and Chinese herbal medicines, and mushroom, and facilities vegetables, and flower seedlings, feadevel y, and sales, and employment, aspects of advantage, through "enterprise + base + poor", mode, guide poverty village, and poorruits and vegetables canned and honeysuckle two big industry, play agricultural processing enterprise in funds, and technology of fCounty, 11 out of poverty is presented here, some form of further stressed. In industry poverty aspects, to relies on I Countpecific village, and specific households, and specific people, real helped points Shang, and help to root Shang. File in the to s households a poverty plans, and a households a helping measures, put poverty funds, and project, and material, implementation 对“法律上利害关系”的判断，理论界大致经历了以下的发展过程: 1、以德国公法学家杰烈内克和日本公法学家美浓部达吉为代表的反射利益说。他们认为行政行为的目的在于维护和促进公共利益，不特定的社会成员从这一行政行为中受益。但是个人由此所得之利益是行政主体在行使行政权力的反射效果，并不是单独地为个体设定权利。根据这一理论在行政行为中受益的个体并不具备独立的请求权。 2、保护规范说。随着公民的请求权的日益扩展，反射利益由于限制过于严格在发展中已不适应潮流，而逐渐发展为“保护规范说”。是指只有当特别法或者单行法对公民、法人或者其他组织的权利作出规定时，才能视为有法律上的利害关系，受特别法所保护的权利的享有主体才能作为行政第三人。 3、行政第三人公权说。行政第三人公权说认为，除了特别法中规定的公民、法人或者其他组织的权利，对于宪法中规定却未在特别法或者单行法中做出规定的基本权利，当其受到行政主体的行政行为的影响时，也应视为有法律上的利害关系，是行政第三人，可以作为第三人参加行政诉讼。 4、事实利益保护说，即公民、法人或其他组织因为法律的实施而享有公共利益，这种利益是一种事实上的既得利益，当这种事实利益受到行政行为的影响的时候，就应当认定为是法律上的利害关系，具备有行政第三人的资格。 依据《行政诉讼法》第2条的规定，公民、法人或者其他组织认为行政机关和行政机关工作人员的具体行政行为侵犯其合法权益，有权依照本法向人民法院提起诉讼。 这里的“合法权益”首先是指特别法所规定之权利，包括民法、行政复议法在内的特别法所规定的权利。再者依据行政诉讼法第11条第5、8项对行政不作为和侵犯公民人身财产权利规定，可见“合法权益”还包括宪法中所规定的公民基本权利。从我国对“利害关系”和“合法权益 ”的规定可以看出，我国采用的是行政第三人公权说。 我国行政法学界比较广泛采用的一种说法是，利害关系即法律上的权利义务关系，是指具有行政诉讼意义上的利害关系，与该具体行政行为存在行政诉讼意义上的权利义务关系，而不是事实层面上的，这种权利义务的实现能重新合理配置行政机关与公民、法人或其他组织的权利义务。这里所说的利害关系是指与因影响原告权利而提起行政诉讼具体行政行为有利害关系的公民、法人或者其他组织(由于法律并未对行政机关作为行政诉讼第三人做出限制性规定，理应包含行政诉讼第三人)。这样既能保证第三人是行政法律关系的主体，又不会因过分限制第三人的而导致诉讼无法顺利进行。根据上述的说法，行政诉讼中的第三人与被诉的具体行政行为有利害关系，所以第三人也与做出该one good, one not. (B) in order to tailor aid measures. After identification of the poor, to tailor aid measures of poverty for poverty alleviation. Focus on "five to the village to" infrastructure to the village to households and industry support to the household, education and training to the village to the village families, renovate rural village households, twinning support to village households. Through villages, analytical grasp of poverty causes door-to-door implementation support responsible, supporting projects and help to fund. According to deficiency what fill what principles, "should be agricultural is agricultural, and should be workers is workers, and should be tour is tour, and should be business is business", developed more precision of poverty programme, put "sent dish door" into let masses "see single order", ensure a households a this Taiwan account, and a households a poverty plans, and a households a helping measures, put poverty funds, and project, and material, implementation to specific village, and specific households, and specific people, real helped points Shang, and help to root Shang. File in the County, 11 out of poverty is presented here, some form of further stressed. In industry poverty aspects, to relies on I County of fruits and vegetables canned and honeysuckle two big industry, play agricultural processing enterprise in funds, and technology, and sales, and employment, aspects of advantage, through "enterprise + base + poor", mode, guide poverty village, and poor development quality forest fruit, and Chinese herbal medicines, and mushroom, and facilities vegetables, and flower seedlings, features industry, absorb poverty labor employment increase, effective increased poor business sex income and workers income, 福建工程学院法学系毕业论文 具体行政行为的行政机关存在或者可能存在这个行政法律关系。由于该具体行为进入诉讼，则第三人和该具体行政行为产生诉讼上的权利义务关系。 笔者认为《行政诉讼法》第27条所规定的“利害关系”，既可以是直接的利害关系，即被诉的具体行政行为直接调整第三人的权利和义务，无须借助其他媒介;也可以是间接的利害关系，即这种利害关系通过其他的法律关系使第三人与该行政行为发生联结。二者的共同点在于被诉的具体行政行为都对第三人的权利和义务产生影响，并且这种影响既可以既存的影响，也可以是将要发生的。 “利害关系”有着以下的内涵: 首先，这种“利害关系”是相对独立的，这种独立体现为第三人在行政诉讼中有独立的诉讼地位。行政诉讼是由于原告不服行政机关做出的具体行政行为而提起的，而第三人是为维护自己的合法权益而参加诉讼的，即使第三人与原被告其中一方有相同或者相似的诉讼请求，但第三人在诉讼中仍是独立于原告和被告的。 其次，这里所称的“利害关系”是指法律意义上的利害关系，但又不局限于行政法律关系。例如根据《行政诉讼法》第11条的规定，认为行政机关侵犯其他人身权、财产权也可以提起行政诉讼，人身财产权就是民法中所规定的民事法律关系。 总之，这种行政诉讼意义上的利害关系是由于被诉的具体行政行为客观上已经或者可能对第三人的权利义务产生影响而产生的，具体行政行为的变动会使第三人既得的或者可得的权利义务发生变化。 根据行政诉讼法的理论，这种利害关系可以分为以下三类: 1、第三人与被告之间存在行政法律关系，这种情形常见于多个相对人的状况。例如部分的行政相对人对该行政行为不服而提起诉讼，而其他的行政相对人不起诉。 2、第三人与原告之间存在行政法律关系，这种情形常见于两个或者两个以上的行政主体对相对人做出同一具体行政行为但相对人只起诉了部分的行政主体又不同意追加其他的行政主体为被告人的案件中，此时第三人为行政机关。 3、第三人与原告之间存在民事法律关系。例如甲对原本属于乙的山林向土地管理部门提出行政确认的请求，乙与该裁决就存在利害关系，在甲起诉之后，乙可以作为第三人参加甲和土地局的行政诉讼。 现行法律关于第三人资格的规定仍然仅限于原则性的规定，要在司法实务中科学 的认定第三人，可以在不违背行政诉讼的基本原则的同时，参考民事诉讼法关于第三人确定的相关规定，同时要结合不断变化的行政管理和行政诉讼的实践，从保护行政诉讼的 one good, one not. poverty programme, put "sent dish door" into let masses "see single order", ensure a households a this Taiwan account, and a ion ofral, and should be workers is workers, and should be tour is tour, and should be business is business", developed more precissupporting projects and help to fund. According to deficiency what fill what principles, "should be agricultural is agricultudoor implementation support responsible, -to-port to village households. Through villages, analytical grasp of poverty causes doorthe household, education and training to the village to the village families, renovate rural village households, twinning sup ion. Focus on "five to the village to" infrastructure to the village to households and industry support to(B) in order to tailor aid measures. After identification of the poor, to tailor aid measures of poverty for poverty alleviat7tures industry, absorb poverty labor employment increase, effective increased poor business sex income and workers income,opment quality forest fruit, and Chinese herbal medicines, and mushroom, and facilities vegetables, and flower seedlings, feadevel y, and sales, and employment, aspects of advantage, through "enterprise + base + poor", mode, guide poverty village, and poorruits and vegetables canned and honeysuckle two big industry, play agricultural processing enterprise in funds, and technology of fCounty, 11 out of poverty is presented here, some form of further stressed. In industry poverty aspects, to relies on I Countpecific village, and specific households, and specific people, real helped points Shang, and help to root Shang. File in the to s households a poverty plans, and a households a helping measures, put poverty funds, and project, and material, implementation 目的出发，科学、合理的认定第三人的资格。 二、现行的行政诉讼第三人制度的存在的问题 经过近20年的发展，我国的行政诉讼法虽然有了巨大的进步，但是社会生活的日新月异，行政管理的复杂性不断增加，我国的第三人制度在立法上仍存在诸多缺陷，在实践过程中也存在许多的困难和问题，主要体现在以下方面: (一)第三人资格认定标准不明确 根据《行政诉讼法解释》第23条第2款规定:“应当追加被告而原告不同意追加的，人民法院应当通知其以第三人的身份参加诉讼。”法律只规定了行政机关作为第三人参加诉讼的这一种情形，但是在其他情况下行政机关可不可以作为第三人参加诉讼并没有明确的规定。由于我国的行政法体系并不完善，行政法的渊源也比较多，再加上我国“一元多层级”的立法体制，行政机关难免会出现权力重叠。在行政诉讼中不仅要查明案件的事实还应审查行政机关是否是适格的行政主体，以此来审查具体行政行为的合法性。如果行政机关不具有行政诉讼第三人的资格，行政诉讼不能顺利进行，也不利于案件事实的查明，司法对行政行为的合法性审查就阻力重重失去公正性。 行政机关的行为可以分为行政行为和非行政行为，当其作出的行为非行政行为，而是以民事主体与被诉行政行为发生联系，毫无疑问，此时行政机关可以作为第三人参加诉讼。但是如果两个没有隶属关系行政机关对同一行为做出了互相矛盾的判决，即有一个行政机关越权裁判，相对人对其中的一个行政机关的裁决不服，如果另一个行政机关参加诉讼，法院的判决必然会对行政的权限进行裁判者就超出了审判权的范围。但是我国宪法并未赋予人民法院审查行政权的权力，所以如果法院通知其以第三人的身份参加诉讼，必然会对行政职权作出裁判。故行政机关是否可以作为第三人参加诉讼仍需要法律予以明确的规定，并且通过一系列的制度来完善。 (二)“利害关系”的规定不完善 《行政诉讼法》第27条所规定的“利害关系”仍然是比较原则性的规定，在司法实践中界定是否存在这种“利害关系”依旧比较困难。广大学者更倾向于将第27条所规定的“利害关系”理解为直接利害关系，即无需其他的法律调整，第三人与被诉的具体行政行为就已经存在权利义务关系，即行政法上的权利义务关系。但是在司法实践中，通常会根据案件的具体情况将“利害关系”做扩大的解释和运用，扩大第三人的范围。由于这一原则性的规定，使得法院对第三人的资格认定上的自由裁量权较大，也会导致相同或类似的案件，对第三人的认定存在巨大的差异，这不仅不利于维护公民、法人和其one good, one not. (B) in order to tailor aid measures. After identification of the poor, to tailor aid measures of poverty for poverty alleviation. Focus on "five to the village to" infrastructure to the village to households and industry support to the household, education and training to the village to the village families, renovate rural village households, twinning support to village households. Through villages, analytical grasp of poverty causes door-to-door implementation support responsible, supporting projects and help to fund. According to deficiency what fill what principles, "should be agricultural is agricultural, and should be workers is workers, and should be tour is tour, and should be business is business", developed more precision of poverty programme, put "sent dish door" into let masses "see single order", ensure a households a this Taiwan account, and a households a poverty plans, and a households a helping measures, put poverty funds, and project, and material, implementation to specific village, and specific households, and specific people, real helped points Shang, and help to root Shang. File in the County, 11 out of poverty is presented here, some form of further stressed. In industry poverty aspects, to relies on I County of fruits and vegetables canned and honeysuckle two big industry, play agricultural processing enterprise in funds, and technology, and sales, and employment, aspects of advantage, through "enterprise + base + poor", mode, guide poverty village, and poor development quality forest fruit, and Chinese herbal medicines, and mushroom, and facilities vegetables, and flower seedlings, features industry, absorb poverty labor employment increase, effective increased poor business sex income and workers income, 福建工程学院法学系毕业论文 他组织的合法权益，也不利于司法的公正。 (三)第三人的诉讼权利不确定 根据《行政诉讼法》、《最高人民法院关于执行<行政诉讼法>若干问题的解释》、《最高人民法院关于行政诉讼证据若干问题的规定》，作为被告的行政机关承担证明其所作出的具体行政行为合法的举证责任，即使原告、第三人提供的证据能够证明该具体行政行为合法，亦不能免除被告的举证责任。被告逾期不提交证据视为该具体行政行为没有依据，得撤销该具体行政行为。当被诉的具体行政行为使得第三人受益，但是在诉讼中由于被告怠于举证导致该具体行政行为被撤销，这会损害第三人的既得利益。所以第三人在诉讼过程中所提交的证据的效力应当区别对待。 行政诉讼第三人在诉讼中的权利与当事人的权利大体一致，但是由于其存在独立于原被告双方的法律利益，第三人可以分为原告型第三人、被告型第三人、证人型第三人，各类型的第三人是否应当承担判决所设定的义务以及承担义务的范围都应当有所区别，但是法律并未做出进一步的规定。 三、不同国家行政诉讼第三人制度设置 第三人制度起源于罗马法，虽然我国首创行政诉讼第三人制度，但实际上是借鉴了德国法的参加之诉的概念，这里笔者将主要的立法实践进行对比，来进一步探讨我国现行的行政诉讼第三人制度的特点。 (一)德国 德国将第三人称之为“参加人”，《联邦德国行政法院法》第65条第1款规定，在终审判决之前，法院可以依职权或依据其他人的申请，通知与诉讼裁判结果有法律上利益的人参加诉讼。由此可见，“参加人”是因其法律上的利益受到裁判结果的影响由法院依职权追加或者本人申请参加诉讼的人。德国法中的行政诉讼第三人既包括与被诉的具体行政行为有法律上的权利义务关系的人，也包括与诉讼结果有利害关系的人。德国法还将“参加人”分为“必要参加之第三人”和“通常参加之第三人”，这与我国民事诉讼法中的“有独立请求权的第三人”和“无独立请求权的第三人”的区分一致。 (二)、我国台湾地区 我国台湾地区《行政诉讼法》第41条规定，对于只能由第三人及当事人一起才能确定诉讼标的的，行政法院应通知第三人参加诉讼。第42条第1款规定:如果撤销该行政行为，会使第三人的权益受损害，法院可依职权通知其参加诉讼。第44条规定:法院认其他行政机关参加诉讼有助案件事实的查明，可依职权通知其参加诉讼。原告以及作为 one good, one not. households a poverty plans, and a households a helping measures, put poverty funds, and project, and material, implementationpoverty programme, put "sent dish door" into let masses "see single order", ensure a households a this Taiwan account, and a ion ofral, and should be workers is workers, and should be tour is tour, and should be business is business", developed more precissupporting projects and help to fund. According to deficiency what fill what principles, "should be agricultural is agricultudoor implementation support responsible, -to-port to village households. Through villages, analytical grasp of poverty causes doorthe household, education and training to the village to the village families, renovate rural village households, twinning sup ion. Focus on "five to the village to" infrastructure to the village to households and industry support to(B) in order to tailor aid measures. After identification of the poor, to tailor aid measures of poverty for poverty alleviat9tures industry, absorb poverty labor employment increase, effective increased poor business sex income and workers income,opment quality forest fruit, and Chinese herbal medicines, and mushroom, and facilities vegetables, and flower seedlings, feadevel y, and sales, and employment, aspects of advantage, through "enterprise + base + poor", mode, guide poverty village, and poorruits and vegetables canned and honeysuckle two big industry, play agricultural processing enterprise in funds, and technology of fCounty, 11 out of poverty is presented here, some form of further stressed. In industry poverty aspects, to relies on I Countpecific village, and specific households, and specific people, real helped points Shang, and help to root Shang. File in the to s 被告的行政机关也可申请其参加诉讼。由此可见，台湾法所规定将行政诉讼第三人分为必要共同诉讼独立参加之第三人、利害关系人独立参加之第三人、辅助参加诉讼之人。为实现诉讼经济，实现行政诉讼的公共利益的目的，避免对同一诉讼标的做出相互矛盾的判决，法院可以强制必要共同诉讼独立参加之第三人参加诉讼。利害关系人独立参加之第三人与德国法中的普通参加之第三人相同，辅助参加第三人有点类似证人的性质。 (三)、日本 日本《行政案件诉讼法》规定，法院由于诉讼结果有损于第三者权利时，依据第三人的申请或者法院依据职权决定，可以吸收第三人参加诉讼。该法第23条还明确规定了，法院可以依据当事人或者其他行政机关的申请或依职权，追加行政机关为第三人。由此，日本法将行政诉讼法分为第三者参加诉讼之第三人与行政机关参加诉讼之第三人，但是行政机关作为第三人参加诉讼时只能以辅助参加人的地位进行诉讼，不得损害当事人的利益。 (四)、我国大陆地区 对比我国台湾地区和包括德国、日本在内的主要大陆法系国家的行政诉讼法关于第三人的规定，主要依据与案件的裁判结果有法律上的利害关系来认定行政诉讼第三人，我国的行政诉讼法采用的是以“与被诉具体行政行为有利害关系”作为认定第三人的前提。行政诉讼第三人参加诉讼的原因，主要是担心法院的裁判结果对实体权利义务的重新配置不合理，会侵害到自己的权益。由于第三人是在诉讼开始之后才参加诉讼，所以随着诉讼程序的进行，裁判结果必然对第三人产生影响。我国行政诉讼法中关于第三人的认定采用了“具体行政行为”这个连接点，而摒弃大陆法系国家所采用的“裁判结果”，实际上是扩大了第三人参与的行政案件的范围。这是限制行政权力，维护公民权利的需要，与主流的行政诉讼立法相一致，具有一定的进步意义。其次，我国对行政诉讼第三人的划分并不明确，如果仅以“利害关系”为参加诉讼的判断标准，那么行政诉讼第三人都是应当参加诉讼的第三人，即德国法所称的“必要参加之第三人”。再者，我国行政诉讼法机关23条只规定了行政机关作为第三人参加诉讼的一种情形，对于其他情况下行政机关能否作为第三人，如果作为第三人，其在诉讼中的权利义务并未做出进一步的规定。 四、完善行政诉讼第三人制度的建议 (一)、明确规定行政机关可以作为第三人参加诉讼 one good, one not. (B) in order to tailor aid measures. After identification of the poor, to tailor aid measures of poverty for poverty alleviation. Focus on "five to the village to" infrastructure to the village to households and industry support to the household, education and training to the village to the village families, renovate rural village households, twinning support to village households. Through villages, analytical grasp of poverty causes door-to-door implementation support responsible, supporting projects and help to fund. According to deficiency what fill what principles, "should be agricultural is agricultural, and should be workers is workers, and should be tour is tour, and should be business is business", developed more precision of poverty programme, put "sent dish door" into let masses "see single order", ensure a households a this Taiwan account, and a households a poverty plans, and a households a helping measures, put poverty funds, and project, and material, implementation to specific village, and specific households, and specific people, real helped points Shang, and help to root Shang. File in the County, 11 out of poverty is presented here, some form of further stressed. In industry poverty aspects, to relies on I County of fruits and vegetables canned and honeysuckle two big industry, play agricultural processing enterprise in funds, and technology, and sales, and employment, aspects of advantage, through "enterprise + base + poor", mode, guide poverty village, and poor development quality forest fruit, and Chinese herbal medicines, and mushroom, and facilities vegetables, and flower seedlings, features industry, absorb poverty labor employment increase, effective increased poor business sex income and workers income, 福建工程学院法学系毕业论文 行政机关能否作为行政诉讼第三人参加诉讼，应该根据该行政机关在被诉的具体行政行为中的地位和作用来综合认定。 笔者认为，行政机关可以作为第三人参加诉讼。根据我国的规定，并未对行政机关作为第三人做出限制性规定。行政机关以第三人参加诉讼，通过举证证明被诉的具体行政行为的合法性，维护自身权益;其次也有利于法院查清案件事实，快速的做出公正的裁决，最大程度的避免公民和行政机关的讼累，节约司法资源，。行政机关作为第三人可以保证司法权对行政权的有效监督，有利于司法公正，提高司法效率。为了避免法院对行政职权做出裁判，则要求行政机关作为第三人参加诉讼时不能提出有关行政职权的诉讼主张，也就是说，其应当作为“原告型的第三人”在诉讼中支持原告的主张。 (二)、明确界定“利害关系”的概念 由于理论界对于我国《行政诉讼法》第27条所规定的“利害关系”有众多的不同意见，也给司法实务操作带来一定的难度，所以明确界定“利害关系”就显得尤为重要。2004年马怀德教授支持起草的《行政诉讼法修改建议稿》中将原《行政诉讼法》中所规定的“利害关系”改为“有法律上的利益”，指明被诉的具体行政行为直接调整第三人法律上的权利、义务，也会直接影响第三人在法律上的的权利和义务的增减。对于是否将“利害关系”限定为“法律上的利害关系”，还是将“利害关系”扩大适用。笔者认为，“利害关系”应该不仅限于“法律上的利害关系”，还应包括“事实上的利害关系”。事实上的利害关系第三人参加诉讼实质上是“证人型的第三人”，有助于案件事实的查清，分清责任。扩大第三人的范围也有利于行政诉讼的目的在于维护公民、法人或其他组织的合法权益，更好的督促行政主体依法行政，这与行政诉讼的目的相一致。在立法上应当予以明确，并细化这种利害关系的情形。 (三)、明确规定行政诉讼第三人诉讼权利 《最高人民法院关于执行<行政诉讼法>若干问题的解释》第26条规定，在行政诉讼中，被告对其做出的具体行政行为承担举证责任。„„并提供作出具体行政行为时的证据、依据;被告不提供或者无正当理由逾期提供的，应当认定该具体行政行为没有证据、依据。 如果允许第三人提供证据证明被诉的具体行政行为的合法性，可能造成被告怠于行使诉讼权利，将不利于司法权对行政权的监督。但是如果该具体行政行为使第三人享有既得利益，则具体行政行为的撤销将会损害第三人的利益。举证责任的分配的目的在于解决争议，查明案件事实，促进公平正义的实现。所以笔者认为应当赋予对第三人证明被诉具体行政行为合法的权利，并加强司法建议的适用。 one good, one not. poverty programme, put "sent dish door" into let masses "see single order", ensure a households a this Taiwan account, and a ion ofral, and should be workers is workers, and should be tour is tour, and should be business is business", developed more precissupporting projects and help to fund. According to deficiency what fill what principles, "should be agricultural is agricultudoor implementation support responsible, -to-port to village households. Through villages, analytical grasp of poverty causes doorthe household, education and training to the village to the village families, renovate rural village households, twinning sup ion. Focus on "five to the village to" infrastructure to the village to households and industry support to(B) in order to tailor aid measures. After identification of the poor, to tailor aid measures of poverty for poverty alleviat11tures industry, absorb poverty labor employment increase, effective increased poor business sex income and workers income,opment quality forest fruit, and Chinese herbal medicines, and mushroom, and facilities vegetables, and flower seedlings, feadevel y, and sales, and employment, aspects of advantage, through "enterprise + base + poor", mode, guide poverty village, and poorruits and vegetables canned and honeysuckle two big industry, play agricultural processing enterprise in funds, and technology of fCounty, 11 out of poverty is presented here, some form of further stressed. In industry poverty aspects, to relies on I Countpecific village, and specific households, and specific people, real helped points Shang, and help to root Shang. File in the to s households a poverty plans, and a households a helping measures, put poverty funds, and project, and material, implementation 第三人应在诉讼进行时参加诉讼，但是一审结束后能否参加诉讼仍存在争议。笔者认为，为了保障第三人的利益，可以允许当事人在终审判决作出前参加诉讼。如果进入二审程序，发现遗漏了第三人，由于第三人与被诉具体行政行为有利害关系，类似于民诉中的有独立请求权的第三人，可以参考民诉法的规定，将该案发回重审，并建议一审法院追加该第三人，有助于案件事实的查清，当事人之间权利义务的确认。 结束语 健全行政诉讼第三人制度有利于维护司法正义，体现司法权对行政权的监督，实现诉讼经济，更好的维护公民的权利，督促行政机关依法行政，使行政行为更趋向于合法化、合理化，行政权可以更有序的运行。 one good, one not. (B) in order to tailor aid measures. After identification of the poor, to tailor aid measures of poverty for poverty alleviation. Focus on "five to the village to" infrastructure to the village to households and industry support to the household, education and training to the village to the village families, renovate rural village households, twinning support to village households. Through villages, analytical grasp of poverty causes door-to-door implementation support responsible, supporting projects and help to fund. According to deficiency what fill what principles, "should be agricultural is agricultural, and should be workers is workers, and should be tour is tour, and should be business is business", developed more precision of poverty programme, put "sent dish door" into let masses "see single order", ensure a households a this Taiwan account, and a households a poverty plans, and a households a helping measures, put poverty funds, and project, and material, implementation to specific village, and specific households, and specific people, real helped points Shang, and help to root Shang. File in the County, 11 out of poverty is presented here, some form of further stressed. In industry poverty aspects, to relies on I County of fruits and vegetables canned and honeysuckle two big industry, play agricultural processing enterprise in funds, and technology, and sales, and employment, aspects of advantage, through "enterprise + base + poor", mode, guide poverty village, and poor development quality forest fruit, and Chinese herbal medicines, and mushroom, and facilities vegetables, and flower seedlings, features industry, absorb poverty labor employment increase, effective increased poor business sex income and workers income, 福建工程学院法学系毕业论文 参考文献: [1]应松年.行政诉讼法学.[M].北京:中国政法大学出版社. [2]王彦.行政诉讼当事人.[M].北京:人民法院出版社，2005. [3]姜明安.行政诉讼法学.[M].北京:北京大学出版社，2001. [4]宋炉安.凭行政诉讼的面审理方式——兼析法国书面审理的经验教训.[J].政法论坛，1998 年1 月. [5]罗其军.行政诉讼第三人.[J].政法论坛，2007年7月 [6]杨津.行政诉讼第三人研究.[J].中国商界，2008年4月. [7]姜明安.行政法与行政诉讼法学.[M].北京，法律出版社，2006年. [8]林莉红.行政诉讼法学.[M].湖北，武汉大学出版社.2001年. [M].中国政法大学出版社，2000年. [9]张树义.寻求行政诉讼制度发展的良性循环. [10]刘东亮.行政诉讼第三人与原告的关系.[J].北京.经济与法，1998年第1期. 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In industry poverty aspects, to relies on I Countpecific village, and specific households, and specific people, real helped points Shang, and help to root Shang. File in the to s households a poverty plans, and a households a helping measures, put poverty funds, and project, and material, implementationpoverty programme, put "sent dish door" into let masses "see single order", ensure a households a this Taiwan account, and a ion ofral, and should be workers is workers, and should be tour is tour, and should be business is business", developed more precissupporting projects and help to fund. According to deficiency what fill what principles, "should be agricultural is agricultudoor implementation support responsible, -to-port to village households. Through villages, analytical grasp of poverty causes doorthe household, education and training to the village to the village families, renovate rural village households, twinning sup ion. Focus on "five to the village to" infrastructure to the village to households and industry support to(B) in order to tailor aid measures. After identification of the poor, to tailor aid measures of poverty for poverty alleviat13tures industry, absorb poverty labor employment increase, effective increased poor business sex income and workers income,