论中央对特区立法备案审查制度的完善路径

On the Improvement of the Central Government’s Recordation Review System Regarding SAR Legislation

中央对特区立法进行备案审查,是中央行使全面管治权的重要内容。其理论基础不仅要从单一制国家理论考量,还须结合央地立法功能性差异、价值多元性与治理效能进行解释。我国宪法第31条与香港基本法第11条、第17条、第158条及第160条共同赋予特区立法备案审查制度合法性基础。备案审查的本质是中央对特区立法权进行监督,其程序建构须符合制度设计理念。面对中央对特区立法备案审查实践存在的不足,应当及时将备案审查制度规范化,健全备案审查流程及公开程序。通过对发回程序的规范解释,明确发回权在处置阶段的唯一性,进而细化衔接程序与纠正程序。

It is an important part of the central government’ s exercise of comprehensive jurisdiction to carry out a recordation review of the legislation in the special administrative region(SAR). Its theoretical basis concerns more than the theory on the unitary state since it must be interpreted in the light of the functional differences, value diversity and governance effectiveness of the central and local legislation. Article 31 of the Constitution, Article 11, Article 17, Article 158 and Article 160 of the Basic Law of Hong Kong together provide the legal basis for the recordation review system of the SAR legislation. In essence, the recordation review is that the central government conducts supervision over the SAR legislative power and its procedure construction must conform to the system design. In view of the deficiencies in the central government’s recordation review of the SAR legislation, it is suggested that the recordation review system should be standardized in a timely manner while the work process and the procedures to make it public should be improved. Through the standard explanation of the remitting procedure, it is made clear that the remitting right can be exercised only once in the disposal stage and the linking procedure and the correction procedure are further specified.