作者：刘飞
作者介绍：中国政法大学中欧法学院教授
出版日期：2023年4月9日
内容提要 对于应如何界分行政协议与单方行为的问题，学界在各时期形成的主导性观点有所不同，“分立说”构成其中的一条主线。尽管如此，现行规范中并未在行政协议与单方行为之间设定制度隔离。由于行政诉讼的审查对象所限，司法实践中需要从行政协议中拆分出来一个部分并拟制为单方行为，才能使相关争议进入行政诉讼。然而，所谓“拆分公式”不仅无法得到行政法学理支撑，亦无法在司法实践中形成制度化的适用模式。行政机关在确定活动方式时，应基于并行禁止原则在两种行为方式之间作出选择。订立行政协议后，行政机关应优先采用协议约定方式，仅在无法“按照约定”且为维护公共利益有所必要时，才可以另行依法作出单方行为。
关键词 行政协议 单方行为 拆分公式 并行禁止 协议优先
Abstract: As for how to distinguish administrative agreement from the unilateral administrative act, academic circles have different dominant views in different periods, and ‘separation theory’ can be regarded as a common thread. However, there is no institutional separation between administrative agreements and unilateral acts in the current regulations. Due to the limitation of the examination object of administrative litigation, a certain part should be extracted from the administrative agreement and regarded as unilateral act in judicial practice, so as to make relevant disputes enter into administrative litigation. However, the so-called ‘split formula’ can not be supported by administrative law theory, nor can it form a systematic application mode in judicial practice. When determining the type of activity, the administrative organ should make a choice between administrative agreement and unilateral act based on the principle of parallel prohibition. After the conclusion of the administrative agreement, the administrative organ shall give priority to the manner stipulated in the agreement. Only when it cannot ‘follow the agreement’ and it is necessary to safeguard the public interest, can it take unilateral action separately according to law.