特定问题调查:规范内涵、实践效能与制度变迁

Investigation of Specific Questions:Normative Connotation,Practical Efficacy,and Institutional Change

“八二宪法”第71条恢复并优化了“五四宪法”设立的特定问题调查制度。宪法为人大及其常委会配置具有多种权力特征的特定问题调查权,旨在促进国家权力机关更好地行使监督权。“八二宪法”颁行40年来,受到“调查引起追责的观念”与“调查可能干预其他国家权力”等因素的影响,特定问题调查制度处于法律规定简陋、功能定位靠后的困境,各级人大对是否选择特定问题调查过于谨慎。地方人大的相关规定、调查事例表明,该制度的功能逐渐由监督个别性事件向摸底宽泛性问题转变,调查的规模不断扩大但重心逐渐泛化。建构和完善人大特定问题调查的实施机制,应结合实际的调查目的配置具体的调查职权,可通过“一事一议”的决定实现对调查权的动态赋权和精准控制。

Article 71 of the 1982 Constitution restores and optimizes the specific questions investigation system established by the 1954 Constitution.The Constitution assigns the People’s Congress and its Standing Committee the power to investigate specific questions with various power characteristics,with the purpose of promoting the organs of state power to better exercise the power of supervision.In the 40 years since the Constitution was promulgated in 1982,under the influence of factors such as“the notion that investigation leads to accountability”and“investigation may interfere with other state powers”,the investigation system for specific questions has been in a predicament with simple legal provisions and backward functional positioning.People’s congresses at all levels are overly cautious about choosing a system to investigate specific questions.The relevant regulations and investigation cases of local people’s congresses and their standing committees show that the function of the system has gradually changed from monitoring individual incidents to investigating broad questions,which means the scope of investigation enlarged but also with an increasingly general focus.To construct and improve the implementation mechanism of the investigation of specific questions by the people’s congress,specific investigation powers should be allocated in combination with the actual investigation purpose.The dynamic empowerment and precise control of the power to investigate specific questions can be achieved through the decision of the People’s Congress on“one decision for one thing”.