内部行政行为纳入行政诉讼受案范围之法要素分析——最高人民法院公布的第22号指导案例评析

On the Legal Factor of Incorporating Internal Administrative Act into Acceptance Range of Administrative Procedure:The Analysis of the 22nd Guiding Case Published by Supreme People's Court

除了具有人事性质的内部行政行为被立法明确排除在行政受案范围之外,其他内部行政行为是否属于行政诉讼受案范围,我国法律并未明确表达。最高人民法院公布的第22号指导案例表明其对该问题的基本态度。然而最高人民法院对于裁判内部行政行为可诉性的根本依据,如,"外化实施"、"行政职权行使"、"权利义务实际影响"等没有进行明确释明,理论界亦说法不一。作为一项体现司法公正与司法能动的制度实践安排,内部行政行为纳入行政诉讼受案范围之判定,要走向成熟,需要明晰提炼其应具备的构成要素,明晰在司法实践中的逻辑思路。通过分析发现,"外化"因素、"行政职权行使"不应是判断内部行政行为纳入受案范围的必备要素,"权利义务实际影响"因素才是决定内部行政行为可诉性的关键。

Except for the personnel management that has been clearly excluded from the acceptance range of administrative procedure, Chinese legal system doesn＇t define the extent of application of incorporating internal administrative act into acceptance range of administrative procedure. The 22 nd guiding case published by supreme people＇s court has given an opinion about this issue. Supreme people＇s court doesn＇t clearly define the foundation,such as ＂externalization of internal act＂, ＂exercise of administrative power＂, ＂practical effect of rights and obligations＂, of incorporating internal administrative act into acceptance range of administrative procedure. The options are also widely divided in theoretical circles. As a systematic arrangement which embodies the judicial righteousness and judicial activeness, the foundation elements and logic relationship of incorporating internal administrative act into acceptance range of administrative procedure, should be made more clear and practical. It is＂practical effect of rights and obligations＂but not ＂externalization of internal act＂ and ＂exercise of administrative power＂, which constitutes the necessary element of incorporating internal administrative act into acceptance range of administrative procedure.