国务院地方性法规审查活动探究——基于“组织关系势能原理”的国家组织法规范分析

Analysis of Review Activity of Local Regulations by the State Council——Based on “Potential Difference Doctrine of Organizational Relations”

国务院作为地方性法规、自治条例和单行条例的备案机关,展开着重要的审查活动,但并不对此具有改变或者撤销权限。宪法、立法法等设定的备案分工结构和改变或者撤销权限结构之间形成交叠错位样态,国务院对地方性法规的备案审查,正处于只备案而无审查权的区域。这是因为国务院同地方性法规制定主体之间,既非领导关系又非监督关系,而仅仅具有上位法制定主体的松散关联,不足以支撑授予审查权。不具有宪法规定的组织基础,使得立法也不宜赋予国务院地方性法规审查权。但国务院的审查活动却具有完善备案审查制度体系的结构性意义,比如,移送审查、衔接联动机制由此而生。

The State Council is the recording agency of local regulations, autonomous regulations and special regulations, and reviews them without the power to modify or revoke them. According to the Constitution, Legislation Law, Law on the Supervision of PCSC at various levels and so on, the division structure between recording and the authority to revoke or modify comes into being an overlapping-misalignment pattern, of which the State Council lies in the misalignment zone which means a role of recording receiver without the power of review. This is determined by the compact connection between the State Council and the maker of the local regulations, which kind of relationship is neither leadership nor supervision, then it is not compact enough to support the granting of the power of review. Thus, the lack of organizational foundation makes it inappropriate and even unconstitutional, even if by law, to grant the State Council the power to review local regulations. However, this kind of reviewing the conduct of the State Council plays an important structural role in the institutional system R&R, for example, the transferring review, mechanism of mediation, and coordination result from those conducts.