监察法规立法规制探讨

Legal Regulation in the Process of Making Supervision Regulations

国家监察委员会的法规制定权问题,本质上是我国立法机关和监察机关在立法上的权限分配问题。结合我国宪法体制、监察法治原理以及监察改革理念和监察组织原则,监察法规之存在本身具备宪制合理性,并在中国特色社会主义法律体系、监察及其他相关法律实施和党规国法衔接中发挥重要功能,在全国范围内具有普遍约束力。但是,现行《监察法》对监察法规及监察法规范性文件的制定主体与主体对应的制定内容尚不明确,制定的程序也仍为空白,唯有满足规制体系与合法内容之双重前提,监察法规之制定行为才具有形式合法性。制定主体层面,仅国家监委有权制定法规,监察规章不具正当性,各级监委及其办公厅(室)可以制定监察规范性文件,并避免“规章性质的文件”;制定内容层面,至少十类事项应纳入保留范围,非经授权不得补充或创制,绝对保留事项应严禁授权;制定程序层面,引入沟通与协商机制、关注决定与公布程序、构建与行政法规相统筹协调的机制、加快制定《监察法规制定程序条例》。

The issue of the power to make laws and regulations of National Supervisory Commission is essentially the problem of the distribution of legislative authority and supervisory authority in China.Combined with China's constitutional system,the principle of supervision by law,the concept of supervision reform and the principle of supervision organization,the existence of supervision laws and regulations has constitutional rationality,and plays an important role in the socialist legal system with Chinese characteristics,the implementation of supervision and other related laws,and the cohesion of the party rules and national laws,and has universal binding force throughout the country.However,the current"supervision law"on the supervision laws and regulations and regulatory documents of the supervision law and the corresponding content of the main body is not clear,and the formulation procedure is still blank.Only by meeting the dual premise of regulatory system and legal content,can the formulation of supervision regulations have formal legitimacy.At the level of the main body,only the National Supervision Commission has the right to formulate laws and regulations,and the supervision rules are not legitimate.The supervision committees at all levels and their general offices can formulate regulatory documents for supervision and avoid"regulatory documents";at the level of formulation content,at least ten categories of matters should be included in the scope of reservation,and they should not be supplemented or created without authorization,absolutely reserved matters should not be authorized;and the formulation procedure level should be formulated.In addition,we should introduce the mechanism of communication and consultation,pay attention to the procedure of decision and announcement,build a mechanism of coordination with administrative regulations,and speed up the formulation of the regulations on the procedures for the formulation of supervision regulations.