论党内法规制定体制的完善——以《立法法》为借鉴

On Perfecting the Formulation System of Chinese Communist Party Internal Laws and Regulations:Using the Law of Legislation as a Reference

"党内法规制定体制"一词在学术界和实践中尚无专门界定,参照法学界有关"立法体制"一词的内涵和我国《立法法》所规定的立法体制的主要内容,可以将党内法规制定体制表述为:是由党章等党内法规对有关党内法规制定权限、党内法规制定权运行和党内法规制定主体的规定所确立的、由体系和制度两方面构成的有机整体。目前关于党内法规制定体制的规定方面较突出的不足主要是在体系方面,具体体现为所规定的制定主体不确定,权限分配不明确,党内法规之间的效力层级关系不明确以及未对党政联合发布党内法规的情形加以规范等。《立法法》从不同性质与不同层级的立法主体的维度和不同效力层级的法律形式及其对应的制定主体权限的维度建立起清晰明确的国家立法体制。可以借鉴这一模式,从有权制定党内法规的主体的维度,对有权制定党内法规的主体及其权限作出明确规定;从不同名称党内法规的归属权的维度,将"党章"等七种名称的党内法规的制定权明确归属于某个主体或某些主体,从而完善党内法规制定体制。

The term ＂ formulation system of internal laws and regulations＂ has not been clearly defined in either academic circles or in practice,but it is possible to understand its meaning by referring to the connotation of ＂legislative system＂ and its major content stated in Law of Legislation in China,which is an organic integrity of institution and rules,constituted by power formulated by internal laws and regulations such as the Party Constitution,operation of formulation power,and regulations on subjects formulating internal laws and regulations.Currently the obvious deficiency of legal formulation regulations is reflected in the system aspect,specifically,the decision-making body is not fixed,the right and power distribution is not clear,the effectiveness level relations among internal laws and regulations are ambiguous,and conditions of laws and regulations jointly released by the Party and the government are not standardized.The Law of Legislation establishes a clear and explicit national legislative system from the dimensions of legislative bodies of different natures and different levels,the legal forms of different effectiveness levels,and the corresponding dimension of the decision making body power.This model can be used to consummate the formulation system of internal laws and regulations by specifying the formulation subjects and their power,and assigning the formulation power of the seven different internal laws and regulations such as the Party Constitution to some or certain subjects.