《监察法》立法文本评析——兼谈《监察法》实施中亟待解决的几个疑难问题

A Textual Analysis of the Legislation of the Supervision Law: With a Discussion of Several Thorny Issues in Its Implementation

《监察法》的最后定稿对比《监察法》的三稿草案,在立法技术和实质法治两方面有着巨大进步。但由于国家监察制度改革是一项全新的国家权力制度构建,为确保监察制度在实践中运行的灵活性,目前《监察法》的规定总体上看相对简约、粗疏,因此不可避免地留下了一些亟待补充和解决的空白地带及疑难问题。应尽快修法确定国家监察委员会对监察法规的制定权,进一步细化对人大代表监察权限可涉及范围及如何与人大代表的特别人身保障程序进行衔接等规定,对教科文卫体单位中的监察对象应做进一步明晰界定,廉政教育对象不应局限于公职人员,应对行政监察三项职能进行科学的界分,分解吸收。要坚持法治原则,以严格规范监察权力为前提,给予《监察法》实施必要的试错空间,立足实践,做到制度设计与实践演变严密缝合。

As compared with its preceding three drafts,the finalization of the Supervision Law marks great progress in both legislative technology and substantive rule of law.However,as the supervision system reform is a new attempt of reconstructing the national power system,the regulations of the present Law are generally simple and sketchy in consideration of flexibility when it is implemented.Inevitably,therefore,some blank spots and difficult issues remain to be filled in or addressed.Specifically,these include:revising the Supervision Law as soon as possible to confirm the formulation right of National Supervisory Commission,specifying regulations regarding the identification of NPC delegates’jurisdiction scope and the ways how the scope is interfaced with their special personal security procedures,redefining the supervised objects of education,science,culture,health care and sports institutions.Moreover,and the objects of anti-corruption education should not be limited to public officials.Rather,the three functions of administrative supervision should be scientifically differentiated,broken down and absorbed.It is also important to uphold the principle of the rule of law under the premise of strictly regulating the supervisory power,and provide ample trial and error space for the Supervision Law,so that system design can evolve in close interaction with practice.