法规审查要求权的规范阐释及其历史契机

The Genesis and Normative Construction of Power for Demand to Review of Regulations

法规审查要求是《立法法》赋予特定国家机关的公权力,具有直接启动审查机制的效力。其规范属性必须结合宪法进行理解。全国人大及其常委会兼具主权代表机关、立法机关和审查机关三重身份,因此,其法规审查在传统上均为主动审查。设立被动的要求机制,意味着全国人大及其常委会的自我限制。通过将审查要求权下放给五类主体,全国人大常委会得以使整个审查制度更加多元和高效。审查要求权的分享意味着要求主体之间的相互监督,因此,要求对象不能局限于法条明文列举,还应当进行目的性扩张解释。国家监督体系的完善与否在根本上决定着审查要求机制能否发挥作用。为消除要求主体“一团和气的共谋”,全国人大常委会可以督促各要求主体制定要求权行使细则。

The demand to review of regulations, which has the ability to initiate review procedure, is a power conferred to certain state organs by law on legislation. The normative characteristics of this power should be understood under the Constitution. The traditional review is triggered by the National People’s Congress and its Standing Committee as sovereign representative organ, legislative organ and reviewing organ. The establishment of passive demand procedure is a self-restraint. By conferring the demand power to the five bodies, the NPCSC could establish a more diversified and efficient review system. The share of demand power signifies the mutual supervision of demand bodies among each other, therefore, the review object should rather be interpreted broader than the textual enumeration based on the purpose of law. The function of demand review procedure is determined by the perfection of state supervision system. In order to avoid the conspired harmony of the five bodies, the NPCSC should urge them to enact the concrete rules of exercising the demand power.