同样，在唐诉移民及种族事务部长案中[82]，一项部门政策要求，根据1958年联邦《移民（移出）法》（Migration Act）第6A条第1项第２目规定，已经获得永久性居民的澳大利亚公民配偶，如果要回到他的原籍国家，必须在那里申请移民程序而不允许抢先加入移民（出）程序，该政策与该法第6条和第6A条列举的立法政策不一致。
上述两例都强调政策必须在法律范围内适用，不得超越法律的规定适用政策。在澳大利亚，也有要求政策应当与反歧视立法保持一致的。在刘易斯案中[83]，申请人在诉讼中获得成功，就是依据了1992年联邦反残疾人歧视法或者根据州反歧视立法规定。
4．改变政策的权利
改变政策是行政机关的权利，这一点可以借鉴。
尽管前述约束裁量的规则是被用来针对政府的规则，但是它也是可以被政府运用的规则。如果政府有义务考虑，某个特定案件中的情况是否能证明不运用政策具有正当性，那么随之而来的应该是，它们也被赋予权利考虑是否继续适用一项特定的政策；而且如果他们认为一项政策不再受欢迎时，他们就应该放弃该项政策。
在格林（Green v. Daniels）案之后的其他案件中，联邦法院强调，行政决定者有必要对某案件的“是非曲直”给予“真实的和现实的考虑”，并且在必要的情况下，准备偏离任何可以适用的政策。[84] 当然如果要偏离政策的话，行政决定者必须在其理由的陈述中加以说明。
格林案中的行政决定者是政府部门首脑。那么该案及其之后其他案件的判决是否适用于独立的法定当局和裁判所对政府政策的考虑？法院指出：“一个独立的机构可能对已定政府政策的反应的程度取决于该机构的特征、其功能的性质，以及与争议中的该项政策的特权（charter）和功能的相关性。没有绝对的规则要求该机构必须不予考虑众所周知的政府政策。另一方面，它不得受到政策的如此影响，以致于不能履行法律打算由其行使的权能。”[85]
可见，行政机关既没有绝对不予考虑政府政策的权利，也可以在具体情况下放弃行政政策的执行。
【作者简介】
朱应平，华东政法大学副教授。
【注释】British Oxygen Co Ltd v. Minister of Technology 【1971】 AC 610; R v. Eastleigh Borough Council; Ex parte Betts 2 AC 613; Sawyer v. Secretary to Department of Primary Industry (1988) 15 ALD 742.
R v. Port of London Authority; Ex parte Kynoch Ltd 【1919】 1 KB 176; British Oxygen, supra,(cf the special position of members of the Conciliation and Arbitration Commission, when sitting alone, described in R v. Clarkson; Ex parte Australian Telephone and Phonogram Officers’ Association (1982) 29 ALR1.
See Margaret Allars, Introduction to Australian Administrative Law, Butterworths 1990,p.199.
这一部分主要来自Roger Douglas, Douglas and Jones’s Administrative Law, 4th ,ed.,The Federation Press 2002, at 502-508.
（美）肯尼斯?卡尔普?戴维斯著：《裁量正义》，商务印书馆2009年版，第114页。
Clark,D, Informal Policy and Administrative Law, (1997) 12 AIAL Forum 30 at.31-35.
以这种语气在司法中的运用参见：James v. Pope 【1931】SASR 441 at 463 (SC; Crouch v. Minister of Works (1976) 13 SASR 553 at 558 (SC); Leppington Pastoral Ltd v. Department of Administrative Services (1990) 23 FCR 144 at 156; Auckland Regional Council v. North Shore City council 【1995】3 NZLR 18 at 23(CA).就这种运用法律方面的例证参见：1991年南澳大利亚《信息自由法》第4条第1款。
Red Dainty and MIEA (1987) 6 AAR 259, 266 (AAT); Re Secretary, Department of Social Security and Bosworth (1989) 18 ALD 373, 375 (AAT).( MIEA 是Minister for Immigration and Ethnic Affairs的缩写)
New Zealand Co-operative Dairy Co v. Commerce Commission 【1992】 1 NZLR 601, 610 (HC).
Smoker v. Pharmacy Restructuring Authority (1994) 53 FCR 287at 299 (FC); Re Bryer and Secretary, DSS (1987) 13 ALD 334 at 336 (AAT); Re Webster and Minister for Veterans’ Affairs (1990) 21 ALD 583 at 584 (AAT); Minister for Human Services & Healrh v. Haddad (1996) 137 ALR 391 at 399 (FCA, FC).
Re Becker (1977) 15 ALR 696, 701(AAT).
Seldan Pty Ltd v. Liquor Licensing Commission 【1990】VR1009, 1014(SC).
Green v. Daniels (1977) 51 ALJR 463,466 (HCA);Hook v. Registrar of Liquor Licences (1980) 35 ACTR1,5.
Stott v. Minister for Immigration and Ethnic Affairs (1985) 59 ALR 747, 749 (Fed Ct).
Weir Family Supermarket v. Liquor Licensing Commission 【1992】1VR 305,311 (App Div).
Shire of Gatton v. Gelhaar (1966) 10 LGRA 228 (Qld FC); Parker v. Commissioner for Motor Transport (1970) 91 WN (NSW) 273,275 (SC)；R v. Minister for Sea Fisheries；Ex parte Byrne (Tas SC NomM 242/1987, 15 September 1987), 10；Parole Board；Ex parte Palmer (1993) 68 A Crim R324,325(Tas SC).
Re Pigdon and Minister for Veterans’ Affairs (1989) 19 ALD 658. 661 (AAT); Re Williams and Defence Service Homes Corporation (1989) 10 AAR 565n,569 n (AAT) ;Re Currie and Secretary, Department of Veterans’ Affairs (1991) 13 AAR 282,284AAT) 26;Hamood v. Forsyth and Tower Hotel Pty Ltd (1972) 58 ISJS 565,568;(1972) 3 SASR 496,500 (FC).
Hughes v. DHSS 【1986】 AC 776,784 H (HL (E))；Somerville v. Dalby (1990) 69 LGRA 422, 427 ( NSW Land & Envir Ct)；R v. Minister For Sea Fisheries; Ex parte Byrne (Tas SC No M 242/1987,15 September 1987),5.
Hamood v. Forsyth and Tower Hotel Pty Ltd (1972) 58 LSJS 565, 568；(1972) 3 SASR 496, 500 (FC).
机构（Agency）在这里是有法定决定权力的政府行政部门的任何决定者（decision-maker）的同义词，包括部长、秘书，集体性决定者如委员会（commission）或当局（authority），以及根据法律的定义具有裁决和制定政策功能的裁判所，参看1991年南澳大利亚《信息自由法》第4条第1款。
Re Aston and Secretary to the Department of Primary Industry (1985) 4 AAR 65 (AAT) ；1993年南澳大利亚《
环境保护法》第
28条第5款第1项。
如参见1982年联邦《信息自由法》第3条。在有些情况下，明确提到该机构制定政策的功能。如参看1993年南澳大利亚《
环境保护法》第26-33条。也看Morton v. Union Steamship Co of NZ Ltd (1951) 83 CLR 402 at 410(HCA); Carjay Pty Ltd v. Superintendent of Licensed Premises (1972) 3 SASR 484 at 490 (FC); Curtis v. Beaudesert Shire Council (1982) 48 LGRA 8 (Qld FC)。法律性政策也可以以附属性立法（subordinate legislation）的形式得到表现：Rosemount Estates Pty Ltd v. Minister for Urban Affairs & Planning (1996) 90 LGERA 1 at 19 (NSW Land & Environment Ct).
在阐述政策和其他事项之间的区别时法院是否比行政人员更好，这是一个开放的问题，这一点也得到法院的承认：Sutherland Shire Council v. Heyman (1985) 157 CLR424 at 468-9 (HCA) per Gibbs CJ。也看Brennan法官对司法外的评论（原本于他的论文：“The Purpose and scope of judicial review”in Taggart (ed), Judicial review of administrative action in the 1980s (Auckland, OUP,1986),20 cited in NCA (Brisbane) Pty Ltd v .Simpson (1986) 13 FCR 207 at 225-6 (FC) where he is quoted as having written: “the courts are not very good at formulating or evaluating policy”.
Lewins v. ANU (1996) 33 ALR 452,463 (Fed Ct) per Lee J.
Re Aston and Secretary to the Department of Primary Industry (1985) 4 AAR 65 at 74-8 (AAT) (“政策不是法律。一项关于政策的声明不是有约束力标准的命令”，“政策不是一种立法性命令……”)；Minister for Industry and Commerce v. East-West Trading Co Ltd (1986) 10 FCR 264 at 269 per Fox J; Gerah Imports Pty Ltd v. Minister for Commerce (1987) 17 FCR 1 at 10-1; Re Dainty and MIEA (1987) 6 AAR 259 at 266 (AAT);Williams and Defence Service Homes Corporation (1989) 10 AAR 565 n at 567 n (AAT).
Re Habchi and MIEA (1980) 2 ALD 631 (AAT); Gerah Imports Pty Ltd v. Minister for Industry, Technology and Commerce (1987) 17 FCR 1 at 12 (Gen Div)(“这样的规则不具有约束性特征”)：Re Uyanik and MILGEA (1989) 10 AAR 38 at 43 (AAT). (注释：MILGEA 是Minister for Immigration, Local Government and Ethnic Affairs的缩写形式)
Marlborough Education Board v. Blenheim School Committee (1987) 15 NZLR 551,556 (SC).
Re Becker and Minister for Immigration and Ethnic Affairs (1977) 15 ALR 696 at 700 (AAT) per Brennan J：“在某个政策制定者形成管理或影响其法律自由裁量行使的政策的时候，该政策必须符合法律”。See also Santos Ltd v. Saunders (1988) 49 SASR 556 at 569 (FC).
Howells v. Nagrad Nominees Pty Ltd (1982) 66 FLR 169 at 195 (FCA,FC):“政策很难界定”。
许多政策不被称为政策。参看Independent Holdings Ltd v. City of Adelaide Planning Commn (1994) 63 SASR 318 at 323 (FC)，在那里，政策被包含在“发展控制的原则”（the principles of development control）中。另一方面，许多政策实际上是附属性立法的形式：Rosemount Estates Pty Ltd v. Minister for Urban Affairs & Planning (1996) 90 LGERAa at 19 (NSW) Land & Enviroment Ct).
Riddell v. DSS (1993) 42 FCR 443,450 (FC).
Elston v. State Services Commission 【1979】1NZLR 210 at 238 (SC); R v. Roberts 1 KB 407 at 438 (CA)：“在政策和行政之间划一条界限，或者给出一个定义并不容易”。这也是议会监督专员立法中的一个问题，该立法允许对行政事项进行调查但是不允许对政策本身进行调查，只有在下列情况下，即在政策变成一个行政事项的情况下，某项政策被适用：Salisbury City Council v. Biganovsky (1990) 70 LGRA 71 at 74-5;(1995) 54 SASR 117 at 120-1 (SASC);Booth v. Dillon (No2) 【1976】 VR 434 at439.
Re Cole’s Sporting Goods Ltd (1965) 50 DLR (2d) 290,297 (Ont CA).
Crouch v. Minister of Works (1976) 13 SASR 553,558 (SC)；Howells v. Nagrad Nominees Pty Ltd (1982) 66 FLR 169, 175 (Fed Ct).
在下列案件中参看政策的争议：British Oxygen Ltd v. Minister of Technology 【1971】 AC 610 at 623 (HL (E) )See also at 635在那里,Reid勋爵说：“但是一个部或者大的机构不得不已经处理了大量的类似的申请，然后他们几乎必然地使一项政策逐步演进如此准确以致于它可以被很好地称为一项规则。在该机构总是愿意听取任何人说一些新的东西的情况下，也不会有理由对此反对“。在Auckland Regional Council v. North Shore City Council 【1995】 3 NZLR 18 at 23 (CA) 案件中，Cooke P说：“在建议……政策不能包括一些高度特定化时，法律顾问没有完备的理由”。
由此，自由信息立法通常指的是规则和实践做法：1982年联邦《信息自由法》第3条第1款；1991年南澳大利亚州《信息自由法》第3条第2款第1项；1989年新南威尔士州《信息自由法》第6条第1款；1992年昆士兰州《信息自由法》第7条。注意比较：1989年澳大利亚首都地区《信息自由法》；1982年维多利亚州《信息自由法》；1991年塔斯马尼亚州《信息自由法》；1992年西澳大利亚州《信息自由法》，它们均没有这些可比的定义。
Minster for Immigration, Local Government and Ethnic Affairs v. Gray (1994) 50 FCR 189 at 206 (FC); R v. Minister for Sea Fisheries; Ex parte Byren and Smith (unreported, SC (Tas), 15 September 1987, No 47/1987 List A, M242/1987) at 9 citing British Oxygen Co Ltd v. Minister of Technology 【1971】 AC 610 at 625 (HL(E)).1989年曾经对作出的大量的决定给出过一个实际经验的显示图，据报道，在1981-1989年期间，社会安全部作出16百万个决定，其中1380件被提交行政上诉裁判所：D Volker: “The effect of administrative Law reform: primary-level decision making” (1989) 58 Canberra Bulletin of Public Administration112.
Britten v. People 【1916】 AD150, 158(AD).
Re Lewis & Superintendent of Motor Vehicles (1980) 108 DLR (3d) 525 (BC SC).
Re Oliver et al Fed Ct, VGT No 140 of 1984, 17 September 1984,6.
对此一个极好的理解参看Crouch v. Minister for Works (1976) 13 SASR 553, 559 (SC).
Re Lloyd & Superintendent of Motor Vehicles (1970) 20 DLR (3d) 181 (BC CA).
Nevistic v. MIEA (1981) 34 ALR 639,647 (FC), per Deane J.( MIEA 是Minister for Immigration and Ethnic Affairs的缩写)
没有行政先例的原则，即某个机构受法律约束以遵循以前的决定：Hall v. Vaucluse MC (1947) 16 LGR 139 at 142 (NSW Land & Val Ct).
Mashaw, JL (1983), Bureaucratic Justice, Yale UP, New Haven, p.213.
Phillips v. Development of Immigration (1994) 48 FCR 57,72-3 (FC).
Jowell , J, (1975) Law and Bureaucracy: administrative discretion and the limits of legal action, Dunellen, Port Washington, Mass..
就这种作用的申明参见：Pezim v. British Columbia (1994)114 DLR (4th ) 385 at 409 (SCC); CJA Local No 579 v. Bradco Construction Ltd (1993) 102 DLR (4th) 402 at 416 (SCC).
See Ex parte Angliss Group (1969) 122 CLR 546 (HCA) 就是澳大利亚这种现象的一个例证。
Noel v. Chapman 508 F 2d 1023 at 1030 (2nd Cir 1975) “one of the values of the policy statement is the education of agency members in the agency’s work”.
Starr v. FAA 589 F 2d 307,312 (7th Cir, 1978).
Argument,S (1994), ‘Quasi-Legislation: Greasy Pig, Trojan Horse or Unruly Child’, 1 Aust J of Admin L 144, at 150-1,159 (举例各种公务员)
Bell & Colville Ltd v. Environment Secretary 【1980】 JPL823,825 (QBD).
（美）肯尼斯?卡尔普?戴维斯著：《裁量正义》，商务印书馆2009年版，第114页。
Phillips v. Secretary, Department of Immigration and Ethnic Affairs (1994) 48 FCR57, 81C-E (Fed Ct); Gerah Imports Pty Ltd v. Minister for Industry, Technology and Commerce (1987) 17 FCR1, 10 (Fed Ct).
在新西兰，这个做法得到确认：New Zealand Fishing Industry Association Inc v. Minister of Agriculture and Fisheries 【1988】1 NZLR 544 at 554-5, 561-2, 568(CA); Minister of Energy v. Petrocorp Exploration Ltd 【1989】 1 NZLR 348 at 352 (CA); Attorney-General v. New Zealand Maori Council 【1991】 2 NZLR 129 at 136 (CA).
Re Commonwealth and El-Hassan (unreported, Federal Court of Australia, 1 October,1985), par 19.
Re MT, KM, NT, and JJ and Secretary, DSS (1989) 9 ALD 146,150 (AAT).
Green v. Daniels (1977) 51 ALJR 463, 13 ALR1.
Re Thomson and the Director of Social Service (1981) 3 ALN N86.
(1981) 38 ALR 624.
Harradine v. Secretary, Department of Social Security (1989) 87 ALR 305; see also O’Brien and the Secretary to DSS (1990) 20 ALD 539.
See eg v. MIMA (1997) 70 FCR 591 (Drummond J); Stuart v. Chief of the Army (1999) 59 ALD 729; 【1999】 FCA 501 at per Beaumont J; Hicks v. Aboriginal Legal Service of Western Australia (2000) 61 ALD 451; 【2000】 FCA 544 (Carr J) at .
BHP Direct Reduced Iron Pty Ltd v. Chief Executive Officer, Australian Customs Service (1998) 55ALD 665 (Carr J).
BHP Direct Reduced Iron Pty Ltd v. Chief Executive Officer, Australian Customs Service (1998) 55 ALD 665 (Carr J).
Stuart v. Chief of the Army (1999) 59 ALD 729.
See, Davis, Discretionary Justice : A Preliminary Inquiry, Louisiana State University Press 1969;p.4.
Margaret Allars, Introduction to Australian Administrative Law, Butterworths 1990,p.199.
Re Drake and Minister for Immigration and Ethnic Affairs (No2) (1979) 2 ALD 634 at 645.
Perder Investments Pty Ltd v. Lightowler (1990) 25 FCR 150;101 ALR151.
R v. Port of London Authority; Ex parte Kynoch Ltd 【1919】1 KB 176 at 184 per Bankes LJ.
Green v. Daniels (1977) 51 ALJR463.
New South Wales Aboriginal Land Council v. ATSIC (1995) 51 FCR 369; BHP Direct Reduced Iron Pty Ltd v. Chief Executive Officer, Australian Customs Service (1998) 55 ALD 665.
Council of Civil Service Unions v. Minister for Civil Service【1985】1 AC374; Minister for Immigration and Ethnic Affairs v. Teoh (1995) 69 ALJR 423.
See also Nicak v. Minister for Immigration, Local Government and Ethnic Affairs (1988) 16 ALD 611.
Drake v. Minister for Immigration and Ethnic Affairs (1979) 24 ALR577.
Drake and Minister for Immigration and Ethnic Affairs (No2) (1979) 2 Ald 634.
Jackson v. Department of Health (1987) 75 ALR 561 at 577.
Margaret Allars, Introduction to Australian Administrative Law, Butterworths, Sydney1990, at 202.
Green v. Daniels (1977) 51 ALJR 463.
See also Legal Services Commission of New South Wales v. Stephens 【1981】 2 NSWLR 697; Singer v Statutory and Other Offices Remuneration Tribunal (1986) 5 NSWLR 646 at 652, 658.
Tang v. Minister for Immigration and Ethnic Affairs (1986) 67ALR177 (Evatt and Davies JJ, Pincus J contra)
Re Lewis & Superintendent of Motor Vehicles (1980) 108 DLR (3d) 525 (BC SC).
Khan v. Minister for Immigration, Local Government and Ethnic Affairs (unreported, Federal Court, 11 December 1987, Gummow J) at .在许多其他联邦法院案件中如Le v. Minister for Immigration and Multicultural and Indigenous Affairs (2005) 215 ALR 521 at 539(Full Federal Court)，这一点已经被强调。
Rendell v. Release on Licence Board (1987) 10 NSWLR 499 at 505.然而在一件后来的新南威尔士州上诉法院案件判决中，由某个矿产登记官根据相关部门指示给矿产申诉施加的一项条件被认为是合法的：Wetzel v. District Court of NSW (1998) 48 NSWLR 687.马森法官主要依赖于部长责任和“各级管理”（line management）责任。
