内部行政规范性文件标准的法治主义立场

The Criterion for Internal Administrative Normative Documents from the Perspective of the Rule of Law

内外部行政规范性文件的区分标准体现了法治发展程度。它起初是以特别权力关系说为理论基础的从属关系。现代德、日行政法学主流学说否定特别权力关系说,主张以“法律效力—效果”为标准,认为内部行政规则是法律赋权行政机关制定的对相对人、法院不产生法律效力或法律效果,仅对所属行政机关及公务员等具有法律效力或法律效果的规则。我国以依法治国原则为基础,在制度上区分了内外部行政规范性文件,采用的标准是与“法律效力—效果”具有相同意义的“涉及相对人权利义务”。在司法实践中,法院通过具体的场景持续阐明了该标准,限缩了内部行政规范性文件的空间。该标准具有相对人和法院两个维度,其中是否被作为司法审查标准尤其应得到重视。该标准应当具有法定外部形式,其中内部行政规范性文件应直接载明“本规定(通知、纪要等)不得作为具体行政行为的依据”,而不能以内部印发为法定形式标准。制定主体的法制机构应当在行政规范性文件的立项阶段加强内外部区分的审查、认定。有关机关应当开展内外部行政规范性文件区分的合法性审查。

The criterion for the distinction between internal and external administrative normative documents reflects the level of development of the rule of law.This notion,initially based in the theory of special power relations,however has been rejected by the mainstream theories of modern German and Japanese administrative law,advocating using the standard of"legal force and effect."According to this perspective,internal administrative rules are regulations formulated by administrative authorities with legal authority,which do not have legal force or effect on the parties concerned or the courts.Rather,they solely possess legal force or effect for the affiliated administrative authorities and civil servants concerned.In China,the principle of governing the country according to law serves as the foundation for distinguishing between internal and external administrative normative documents.The criterion used is the concept of"involving the rights and obligations of parties concerned,"which aligns with the aforementioned"legal force and effect"standard.In judicial practice,courts have consistently clarified this criterion through specific scenarios,thereby narrowing the scope of internal administrative normative documents.Notably,this criterion encompasses two dimensions:the parties concerned and courts.Whether it is used as a judicial review criterion deserves particular attention.Consequently,its significance as a standard for judicial review should be duly acknowledged.To ensure its effectiveness,this criterion should possess a legally mandated external form.Internal administrative normative documents should explicitly state"This regulation(notice,minute,etc.)shall not serve as the basis for specific administrative actions,"rather than relying on internal issuance as a statutory form criterion.Additionally,during the formulation stage of administrative normative documents,the legislative body should strengthen the examination and determination of the distinction between internal and external documents.Furthermore,relevant agencies should carry out a legality review to assess the distinction between internal and external administrative normative documents.