备案审查的制度变迁及其原因

The Evolution of the Recordation Review System and Its Causes

《关于完善和加强备案审查制度的决定》的出台,标志着备案审查制度日趋成熟。四十多年来,备案审查在制度和实践两个层面都经历了重大变迁,既遵循了在积累经验中建立“传统”的我国当代法治建设的渐进模式,也存在变法与自发制度变迁交叉演进的特征。这个变迁过程并非一蹴而就,而是一个不断调试、叠加、积累的过程。审查对象不断扩大、启动程序交替变化、审查标准更加多元、制度运行日益显性,是其中最为关键的变化。与此同时,制度构建与制度实践密切互动、同步推进、相辅相成,备案审查的整体制度效能也空前提升。显性化、制度化、常态化,是其效能提升的集中体现。国家顶层设计的助推、宪法实施态势的牵引、监督理念变化的影响、维护法制统一的需要,共同促成了备案审查的提质增效。同时,增强撤销程序的可操作性、提高审查能力、加强审查论证的说理性,将成为未来制度完善的方向。

The introduction of the Decision of the Standing Committee of the National People's Congress on Improving and Strengthening the Recordation Review System marks the growing maturity of the recordation review system in China.Over the past four decades,this system has undergone significant changes at both the institutional and practical levels,with the most crucial changes being the continuous expansion of the scope of review subjects,the alternating changes in the initiation procedure,the more diversified review standards,and the increasing visibility of its operation.In the 2000 Legislation Law,the recordation review system only covered administrative regulations,local regulations,autonomous regulations,and separate regulations.Since then,through amendments to the Legislation Law and other means,regulations of special economic zones,judicial interpretations,regulations of the Pudong New Area,regulations of the Hainan Free Trade Port,and laws of special administrative regions have also been made subjects of the review.In practice,some laws and normative documents have also been treated as subjects of the review.Until 2000,active review had been the dominant,and at the same time the only way to initiate the review.In the late 1990s,the specialized committees of the National People's Congress proposed to switch to the passive review,which was codified into the Legislation Law.In 2015,the revised Legislation Law explicitly adopted active review as a statutory review mode.In 2023,special reviews were provided for in the Legislation Law.The current Constitution takes the lead in setting the tone for the standards of the review of constitutionality and legality.The 2000 Legislation Law basically followed the standard of review established by the Constitution.At the practical level,the changes in the standard of review are obvious.Prior to 2017,the degree of openness of the recordation review procedure was extremely low,and the practice is basically in a state of"doing without saying".Starting in 2017,the Legislative Affairs Commission of the Standing Committee of the National People's Congress(NPCSC)has been making annual reports on its recordation review work to the NPCSC,which played an important role in promoting the publicity of the recordation review procedure.In addition to the annual report,the Legislative Affairs Commission has opened at least three other important platforms for public participation and disclosure.The above-mentioned key changes in the recordation review system are the result of interactions between many factors,the four most important ones being the impetus of the national top-level design,the traction of the constitutional implementation trend,the change in the perception of supervision,and the need to uphold the unity of the legal system.