内部行政规则试论

On the Interior Administrative Rule

内部行政规则在实践中多以批复、通告等公文形式表现出来,是行政机关内部层级间连接与运作的重要技术工具。宪政理论上的行政保留、行政自制理论,行政实践中的自由裁量和科层制为内部行政规则的发轫提供了空间。如果从作用之功能范围角度进行划分,内部行政规则可分为组织性规则、解释性规则和给付性规则三种类型。总的来说,各类型的内部行政规则都具有绝对的内部拘束力,但不一定都具有间接的外部法律效力。内部行政规则对外发生法律效力需要符合必要的条件,且不同类型的内部行政规则在对外效力上存在差异,因而,需要在实践中加以区分。

The interior administrative rule, in form of reply, notice and other official document in practice, is the important tech- nical tool which connects with the interior administrative and makes the interior administrative operated. The interior administra- tive rule does not directly bind administrative counterpart. The theories of administrative reservation, administrative self-restraint, administrative discretion and the bureaucratic system are the theoretical basis of the interior administrative rule. Considering the effect of the interior administrative rule, it can be divided into three types ： the organizational rule, the interpretative rule and the payment rule. In general, various types of the interior administrative rule has internal absolutely binding, but does not always have the effect of indirect external legal effect, and it should be distinguished in practice.