比例原则在备案审查中的运用——以适当性审查为中心

The Application of Proportional Principle in Filing and Review of Regulations--Centered on Appropriateness Review

比例原则已被我国多部立法、中央文件以及司法判例所承认,在备案审查实践中也多次被援引。宪法上的比例原则与行政法上的比例原则存在不同,前者旨在控制立法裁量权,后者旨在控制行政裁量权。从科学立法的角度,宪法上的比例原则不仅适用于判断立法是否过度限制公民基本权利的领域,也可以适用于判断立法对公民基本权利的保障是否不足的领域。备案审查机关在适用比例原则时应当遵循“目的正当性-妥当性-必要性-均衡性”的审查步骤和审查顺序,从而强化适当性审查中的说理,并且可以针对不同立法事项采取不同审查强度的做法,以维护审查机关与立法机关之间的权限分工。

The principle of proportionality has been recognized in multiple legislative and central documents as well as judicial precedents in China,and has been repeatedly cited in the practice of filing and review of regulations.The principle of proportionality in the Constitution is different from the principle of proportionality in administrative law.The former aims to control legislative discretion,while the latter aims to control administrative discretion.From the perspective of scientific legislation,the principle of proportionality in the Constitution is not only applicable to the field of judging whether legislation excessively restricts citizens'fundamental rights,but also to the field of judging whether legislation provides insufficient protection for citizens'fundamental rights.When applying the principle of proportionality,the filing and review authority should follow the review steps and order of“legitimacy of purpose-appropriateness-necessity-balance”,in order to strengthen the reasoning in the appropriateness review,and can adopt methods of using different review intensities for different legislative fields to maintain the division of powers between the review authority and the legislative authority.