监察法规的入法之路:立法法的方案、理由及后续监督

The Way of Supervision Laws and Regulations Transforming to Be Law:The Scheme,Reasons and Follow-up Supervision of the Legislative Law

面对监察法规的规范基础问题,建立在立法权与行政权二元区分上的传统法治理论,难以作出有效回应。遵循一般法治原理,监察机关立法权属于法律保留事项,2023年立法法修改增加关于监察法规的规定,具有必要性。此次立法法修改,选择参考军事法规而非比照行政法规的入法方案,充分考虑了监察法规的特殊性以及立法法的基本属性。一方面,监察权具有实在性,但行使这一权力的监察委员会同党的纪律检查机关合署办公,是否具备实体性存在争议。另一方面,纪检监察机关施行党政合署办公、一体化运作,监察法规整体上属于党和国家监督体系。立法法不具有超出宪法配置立法权的功能,不必对党政关系进行明确规定,而是可以将空间留给监察法。目前,监察法规在规范基础和实践运作上仍面对着一些挑战,这要求在深化国家监察体制改革中加强对监察法规的监督。未来可以考虑修改监察法,对监察法规的权限、程序以及监督机制等作出进一步规定。

The traditional theory of the rule of law,which concerns the legislation of the legislature and the administrative organs under the differentiated structure of legislative power and administrative power,lacks the ability to an effective respondent of the normative issues of supervisory regulations.Following the general principle of the rule of law,the legislative power of supervisory organs belongs to the matter of legal reservation.It is necessary to amend the Legislative Law in 2023 to add provisions for supervisory regulations.For the transforming of supervisory regulations to be law,the way of administrative regulations transforming path is a feasible choice.However,Legislative Law has chosen to refer to military regulations rather than supervision regulations.This arrangement fully considers the particularity of supervision regulations and nature of the Legislative Law.On one hand,the supervisory power is substantial,but whether the supervisory committee exercising its power through the joint office with the party's disciplinary inspection organs is substantial or not,still remains a controversial issue.On the other hand,the discipline inspection and supervision organs implement the party-government joint office and integrated operation,therefore supervision regulations as a whole belongs to the Party and state supervision system.Since Legislative Law does not have the function of allocating legislative power beyond the constitution,it is not necessary to clearly stipulate the relationship between the party and the government,leaving a space for Supervision Law's further stipulation.At present,supervision regulations still face some challenges,which requires strengthening the supervision of the supervision regulations in the path of deepening the reform of national supervision system.In the future,Supervision Law should be amended to further stipulation of the authority,procedure and supervision mechanism of supervision regulations.