何为内部行政行为:概念厘清与体系梳理

What Is Internal Administrative Act:Concept Clarification and System Analysis

内部行政行为作为行政法的基石性范畴,因对行政行为概念的认识差异及受“司法视角中心主义”的视野局限,其概念、体系长期未形成共识。行政行为概念的确立是厘清内部行政行为概念的前提,从历史、实践与未来发展三个角度考察,行政行为应采广义概念。内部行政行为在内部行为体系中仅包括行政机关作出的属于行政行为的那部分行为。内部行政行为应定义为行政机关行使行政职权作出的具有内部行政法效力的行政行为,这种法效力的内部性建立在行为主体管辖权的基础之上并受其限定。内部行政行为的体系包括制定内部行政规定的行为与内部行政处理,但所谓“内部行政协议”因签约行政机关之间欠缺内部性关系而无法成立。

Intermal administrative act is a cornerstone of administrative law.However,a consensus has not been reached on its concept and system due to different cognitions about its concept and the view limited by“judicial perspective centralism”.The establishment of the concept of administrative act is the premise of clarifying the concept of internal administrative act.From the perspectives of history,practice and future development,administrative act should be taken in a broad sense.In the intermal act system,the internal administrative act includes only the part of the administrative act made by the administrative organ.The internal administrative act should be defined as the act of the administrative organ that has the effect of internal administrative law,and the internality of this legal effect is based on and limited by the jurisdiction of the actor.Its system includes the act of formulating intermnal administrative regulations and internal administrative processing,but the so-called“interal administrative agreement”cannot be valid due to the lack of internal relations between the contracting administrative organs.