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2011年国务院办公厅《关于做好政府信息依申请公开工作的意见》中首次出现“内部管理信息”字样,此后其逐渐成为政府信息不公开的“第三条款”。然而,规范并未提供对“内部管理信息”概念的具体解释,理论界也尚未就此问题达成共识,实务部门难以应对相关的信息公开申请,导致我国信息公开豁免范围的弹性过大。本文拟从构建内部管理信息的判断框架着手,以内部管理信息的本质要件、限制条件及例外情况为主要关注点。其中,“日常性”和“内部性”是构成内部管理信息的本质要件;而“公开是否妨碍政府职责的履行”为其限制条件。在此基础上,还应当承认内部管理信息不公开存在例外,以完善整体的判断流程。内部管理信息的“一般”不公开,是利益衡量后的必然选择,文章将从“利益衡量的原则”、“利益的分类与定位”、“利益的比较”三个方面加以分析。针对利益衡量客观性不足的问题,则必须加强衡量时的论理。随着国情社情的变革,内部管理信息的公开程度也将随之发生变化,甚至可以大胆设想由“公开为例外”转向全然公开。但基于如今我国政府信息公开发展尚不充分的现实,我们还不能走得过远,必须先专注于限制不公开空间的工作。本文界定内部管理信息内涵外延的工作,仅仅是一个开端。
In 2011, the General Office of the State Council made its first appearance of “Internal Management Information ” in the “Opinions on Doing a Good Job of Opening up Government Information According to the Application,” and since then it has gradually become the “third claimant” of government information that is not publicized. However, the norms do not provide a specific explanation of the concept of “internal management information”. Theorists have not yet reached a consensus on this issue, and substantive departments can hardly cope with relevant applications for information disclosure. As a result, the scope of information disclosure in our country is too flexible. This article intends to start from the framework of the construction of internal management information, with the essential requirements of internal management information, restrictions and exceptions as the main concerns. Among them, “daily ” and “internal ” constitute the essential elements of internal management information; and “open whether obstruct the fulfillment of government duties ” as its restrictions. On this basis, we should also acknowledge the exception of the non-disclosure of internal management information to improve the overall judgment process. Internal management information “general ” is not open, is the inevitable choice after the measure of interest, the article will be from the “principle of interest measurement”, “classification and positioning of interests”, “interest comparison ” three One aspect to be analyzed. In the interests of measuring the lack of objectivity, we must strengthen the measurement of reasoning. With the transformation of social conditions in the country, the level of disclosure of internal management information will also change, and even the bold assumption is that “publicity as an exception” should be changed to openness. However, due to the fact that the open development of government information in our country is not yet sufficient, we can not go too far and we must first focus on the work of limiting the non-open space. This paper defines the connotation of internal management information extension is only a beginning.