论多阶段行政行为中前阶段行为的可诉性——基于典型案例的研究

On the Judicial Review of Pre-stage Action in Multi-stage Administrative Action:Based on the Typical Cases

在多阶段行政行为中,前阶段行为只向后阶段行为机关作出,不具有外部效力;行政相对人只能就最后阶段行为提起诉讼。针对例外情形,典型案例在外部效力和行为效果两个层面上,形成了判断多阶段行政行为中前阶段行为是否可诉的基本思路。单纯从行为效果的角度判断前阶段行为是否可诉,不符合法律责任的制度性分担规则。但基于救济权利的保障目的,指导性案例22号的思路一定程度上可以解决个别领域中行政相对人的救济权利难以得到有效保障的制度性和现实性障碍。

Generally, only the final decision of the multi-stage administrative action could be subject to judicial review. And the prior administrative action does not preclude review. This process of examination is designed to ensure effective judicial scrutiny of administrative actions which have an immediate and adverse effect upon a party while avoiding undue judicial interference with the administrative decision-making process. Judicial decisions of typical cases have already clarified this issue with the analytic framework： the external effect of previous action, the relationship between prior action and final decision. No. 22 of the guiding cases, however, provided a pragmatic standard for the justiciability of prior administrative action, which is different from early typical cases.