行政规则及其效力外部化初探

Analysis of Administrative Regulation and Externalization of the Effects

行政规则是指行政机关基于行政指挥权,为了规范行政机关的内部秩序或运作,对下级行政机关及其所属公务人员所发布的并不直接对外发生法律效果的抽象性规定。其类型依据不同的功能可分为组织性规则和执行性规则。行政规则不仅具有拘束行政机关及其所属公务人员的效力,而且依据平等原则、信赖保护原则以及组织性规则、解释性规则、裁量性规则与补充性规则的条件,在一定程度上具有间接影响外部相对人权利和义务的法律效果。因此,法院在行政诉讼中如果发现行政规则违反法律、法规、规章或者法律的精神时,应拒绝对其予以适用;如果发现其是合法有效的,也应该在判决文书中予以援引。

In order to standardize the internal order,the administrative regulation indicates an abstract rule which, based on the administrative commanding power,is issued by the administrative organs to the government offices at lower level and public servants without direct external effects of law. In accordance with the different functions the type of administrative regulation falls into two categories:executive regulation and organization regulation.Not only does the administrative regulation have effect on restricting the government offices and public servants,but also,to some extent,has an effect of law on the right and the obligation of the external counterpart.Therefore, the court should give a refusal of enforcement of administrative regulation when the administrative regulation is found illegal in rules and ethic,but when it is found lawful the court should invoke the provision in the court verdict.