Art. 49 BV; competence and admissibility of a constitutional complaint against cantonal internal administration: the Federal Court may, despite its constitutional competence, require prior recourse to the highest cantonal authority when no intercantonal conflict is involved and the dispute concerns the application of a federal constitutional norm within a canton. This procedural reservation is especially justified where the legal question is of general significance and the court seeks the position of the cantonal supreme authority before adjudicating the merits (consid. on jurisdiction and referral).