法规备案审查制度的法定化过程

The Legalization Process of the Filing and Review of Regulations

法规备案及审查的实践可追溯至建国初期的行政规范性文件备案与法规整理。其在当代的萌芽则可定格于1979年《地方组织法》及1982年全国人大常委会对地方性法规的审查实践。此后,法规备案审查制度经历频繁调整。90年代中后期,监督发力并再次聚焦地方性法规。监督实践的积累也暴露了不少制度缺陷,由此开展的争鸣则为《立法法》完善备案审查制度奠定了基础。备案审查制度的法定化反映了“有法可依”时代维护法制统一的制度需求。备案审查制度的前二十年发展呈现出制度构建活跃于制度实践的特征。这在一定程度上抑制了制度发展,并使其未能成为全国人大常委会的一项主要监督职权。当然,制度构建终究是需要的。《立法法》所引入的被动审查便是一个富有建设性的伏笔,其中蕴藏着蓄势待发的制度活力。

The practice of filing and reviewing laws and regulations can be traced back to the filing of administrative normative documents and sorting out laws and regulations in the early days of the founding of the People's Republic of China. Its germination in contemporary times can be dated back to the 1979 "Local Organization Law" and the 1982 National People's Congress Standing Committee's review of local regulations. Since then, the regulation filing review system has undergone frequent adjustments. In the mid-to-late 1990s, supervision became more effective and focused on local regulations again. The legalization of the filing review system reflects the institutional demand for maintaining the unity of the legal system in the era of "laws to follow". The development of the filing and review system in the first two decades showed the characteristics that system construction was active in system practice. This has inhibited the development of the system to a certain extent, and prevented it from becoming a major supervisory power of the NPC Standing Committee. Of course, institutional construction is needed after all. The passive review introduced by the "Legislation Law" is a constructive foreshadowing, which contains the vitality of the system that is ready to go.