王由海

（中国政法大学法学院，北京 100088）

【摘 要】面对消极性事实的证明责任分配困境，实践中通过“合理检索义务”的履行来推定政府信息不存在，但因程序性义务的审查标准过低以及政府信息管理制度的不完善，难以实质解决政府信息是否存在问题。然而，指导案例 101 号通过引入以提供初步证据为核心的间接反证规则，阻断“政府信息不存在”的推定效力，强化行政机关的举证义务，值得关注。原因在于，这一案例在明确检索义务标准、初步证据内涵的基础上，厘清政府信息不存在诉讼的审查规则。具言之，其首先以“合理检索义务”的履行推定政府信息不存在，来提高行政效率、规制滥诉行为。其次，原告通过提供信息存在的初步证据，强化行政机关的举证义务，保护公民的知情权。进言之，完善政府信息公开的治理，不仅需要完善诉讼内的审理机制，还要通过电子政务建设与行政复议监督等诉讼外机制，实现信息不存在纠纷的源头治理。

【关键词】政府信息不存在 ; 证明责任 ; 检索义务 ; 反证规则 ; 溯源治理

【中图分类号】D915.13

【文献标识码】A

【文章编号】1674-1226（2021）02-0208-14

Proof predicament and rule reconstruction in the case of "non-existence of government information". Wang Youhai. 1. School of Law, China University of Political Science and Law, Beijing 100088, China; 2. School of Law, China University of Political Science and Law, Beijing 100088, China.

【Abstract】To address the dilemma of allocating the burden of proof for negative facts, the judicial practice is to presume the non-existence of government information through the fulfillment of the "reasonable search obligation". However, because of the low standard of review of procedural obligations and the imperfection of the government information management system, it is difficult to substantially solve the problem of whether government information exists. Guiding Case No. 101, by introducing the rule of indirect counterproof which focuses on providing preliminary evidence, blocked the presumptive effect of " non-existence of government information " and strengthened the burden of proof of administrative organs. This approach is well worth adopting. The reason is that this case, on the basis of clarifying the retrieval obligation standard and the connotation of preliminary evidence,clarifies the review rules that non-existence of government information in litigation. To be specific, this case first assumes that government information does not exist by the fulfillment of "reasonable retrieval obligation" to improve administrative efficiency and regulate abuse of litigation. Secondly, by providing preliminary evidence of the existence of information, the plaintiff strengthens the administrative organ's burden of proof and protects citizens' right to be informed. In general, to improve the governance of government information disclosure, it is necessary not only to improve the trial mechanism within the litigation, but also to realize the source governance of information without disputes through the construction of e-government affairs and administrative review supervision and other mechanisms outside the litigation.

【Key Words】Non-existence of government information; Burden of proof; Retrieval obligation; Rule of disproof; Traceability governance