中国立法体制的组织生成与制度逻辑

The Organizational Formation and System Logic of China’s Legislative System

立法体制是中国特色社会主义制度的组成部分,是推进国家治理体系和治理能力现代化的制度依托。从各界代表会、人民代表会议、政府委员会到人民代表大会,立法体制的组织生成经历了复杂的历史演进。基于超大型统辖规模、不平衡不充分区域发展,中国国家治理呈现出多层级化和逐级下沉的治理格局。因此,中国虽然在宪法体制上是单一制的国家,但在立法体制中推行的却是中央权威性与地方层级性立法并存的运行结构。一方面,立法领导权的一元性、国家立法权对地方立法权的统领性、地方立法权相对国家立法权的从属性,构成了中国特色立法体制的权威性特征。另一方面,国家立法权被划分为最高权力机关立法权,最高行政机关立法权,最高监察机关立法权,最高军事机关立法权,国务院所属部门立法权,中央军委各总部立法权;地方立法权被划分为省级立法权,设区的市立法权,各军兵种,军区立法权,特别行政区立法权等,构成了中国特色立法体制的层级性特征。"一元多层"立法体制具有兼顾统一性和灵活性的功能,对于实现党对立法工作的领导,实现国家治理体系对立法体制的统合,以及立法主权与治权的互动具有积极意义。

The legislative system is an integral part of the socialist system with Chinese characteristics and the institutional support for the modernization of the country’s governance system and governance capabilities.From the Representatives of All Walks of Life,People’s Congresses,Government Committees to People’s Congresses,the organization of the legislative system has undergone complex historical evolution.Based on the large scale of jurisdiction and the unbalanced and inadequate regional development,China’s national governance presents a governance pattern of multi-level and gradual sinking.Therefore,although China is a unitary country in the constitutional system,what is being promoted in the legislative system is an operating structure in which central authority and local-level legislation coexist.On the one hand,the unity of legislative leadership,national legislative power’s command over local legislative power,and the subordination of local legislative power to national legislative power constitute the authoritative characteristics of the legislative system with Chinese characteristics.On the other hand,the national legislative power is divided into the legislative power of the highest authority,the legislative power of the highest administrative agency,the legislative power of the highest supervisory agency,the legislative power of the highest military agency,the legislative power of Ministries,the legislative power of the headquarters of the Central Military Commission,and the power of local legislative power is divided into provincial legislative power,legislative power of municipalities divided into districts,legislative power of military regions and various and arms,legislative power of Special Administrative Region,etc.,constituting the hierarchical characteristics of the legislative system with Chinese characteristics.The"One-center and Multilayer"legislative system has the function of giving consideration to both unity and flexibility.It is of positive significance for the realization of the party’s leadership of legislative work,the integration of the national governance system with the legislative system,and the interaction between legislative sovereignty and governance power.