《民族区域自治法》“序言”的规范实施

Regulatory Implementation of the Preamble to the Law on Regional Ethnic Zizhi

《民族区域自治法》是中国少数几部规定了“序言”的法律之一。作为法律文本的重要组成部分,《民族区域自治法》的“序言”规定了关乎国家重要事项未来目标和规划的内容,涉及国家和民族自治地方自治机关的许多重要职责,赋予义务主体逐步完善实施民族区域自治制度的规范性因素,因而,“序言”有必要加以积极实施。然而,《民族区域自治法》作为主要规定“目标规范”的“行政执法导向的法律”的组成部分,其“序言”的实施无法通过司法路径来获得实现,而是需要遵循“行政执法导向的法律”的实施路径,通过下位阶立法机关和行政执法部门去层层细化和落实上位阶法律的规定的方式加以实施。

Law on Regional Ethnic Zizhi(LREZ) is one of the few laws that provides a preamble like the Constitution does. The validity of the Preamble to the Constitution has a profound impact on the validity and implementation of the Preamble to the LREZ. As an important part of law text, the Preface to the LREZ stipulates the contents related to the goals and plans of principal national affairs, involves many essential responsibilities of the state organs in ethnic Zizhi regions, and clarifies the obligated subjects to gradually improve the implementation of normative factors of regional ethnic Zizhi. Therefore, the Preamble needs active implementation. However,the LREZ is an integral part of the “administrative enforcement oriented law” that mainly stipulates “target norms”. So the implementation of its preface can not be achieved through the judicial path. Instead, it follows the path of “administrative enforcement oriented law” and requires implementation through lower-level legislatures and administrative law enforcement departments to refine and implement the provisions of upper-level laws.