无效行政协议与无效行政行为之区辨  

Distinction Between Invalid Administrative Agreements and Invalid Administrative Acts

作　　者：殷勤[1] Yin Qin

机构地区：[1]江苏省南通市中级人民法院

出　　处：《法治现代化研究》2025年第1期155-167,共13页Law and Modernization

摘　　要：以行政行为无效主导认定行政协议无效,是当前主流实务观点,但这一审理思路未关注到单方行政行为与公私合意形成的双方法律行为的主要差别,难以匹配复杂的行政协议实践与纠纷解决需要。行政行为无效立足于全面无漏洞的合法性审查体系,强调行政行为违法明显到“一望额头便可知”。行政协议是公私合意的结果,不具备合法性推定和先予服从效力,只在意思自治无法得到贯彻或不被法律秩序认可时,效力受到影响。行政协议在容许性、合法性及法律效果分配等方面,均无法径行移用行政行为合法性拘束及法效果理论。民法典有关双方法律行为及其效力的体系规定是成熟的立法例,除特别条款外,既适用于私法契约,也适用于公法契约。有关“违反法律、法规强制性规定的民事法律行为无效”规则,是对行政法律规范的转介适用,能够体现对依法行政原则的贯彻。为此,应当转变审理思路,构建“关系审”为主、“行为审”为辅的行政协议案件审理结构,行政行为无效则作为对重大明显违法行政协议的底线规则。The current mainstream practical view is that the invalidity of administrative acts leads to the determination of the invalidity of administrative agreements.However,this line of reasoning fails to recognize the fundamental differences between unilateral administrative acts and bilateral legal acts formed through public and private consensus,making it difficult to match the complexities of administrative agreement practices and dispute resolution needs.The invalidity of administrative acts is based on a comprehensive and rigorous legality review system that emphasizes that violations must be obvious enough to be“immediately apparent”.Administrative agreements are the result of publicprivate consensus and do not enjoy a presumption of legality or prior obedience;their validity is only affected when autonomy cannot be upheld or is not recognized by the legal order.In aspects such as permissibility,legality,and distribution of legal effects,administrative agreements cannot directly apply the theories of legality constraints and legal effects applicable to administrative acts.The provisions in the Civil Code regarding bilateral legal acts and their validity represent a mature legislative example,applicable to both private and public contracts,and the rule stating that“civil legal acts that violate mandatory provisions of laws and regulations are invalid”serves as an adaptation of administrative legal norms,reflecting the implementation of the principle of law-based governance.Therefore,it is necessary to shift the approach to adjudication,constructing a trial structure focused on relational assessments with supplementary behavioral assessments,where the invalidity of administrative acts serves as a baseline rule for major and obvious violations of administrative agreements.

关 键 词：行政协议无效 行政行为无效 民法典规范 单方行政行为 双方法律行为 

分 类 号：D925.3[政治法律—诉讼法学] D922.1[政治法律—法学]