以宪法解释化解立法中的合宪性争议——从《国务院组织法》修改切入

The Role of Constitutional Interpretation in Resolving Constitutionality Disputes During Legislation——The Constitutional Interpretation Issues in the Revision of the“Organic Law of the State Council”

立法中常出现合宪性争议。2024年《国务院组织法》修改过程中,就草案规定中国人民银行行长为国务院组成人员,有意见认为其与《宪法》第86条不符。合宪与否的判断,不能直接通过比对法律(草案)文本与宪法文本得出结论,而需要先对宪法文本进行解释。解释宪法时,文本的字面含义具有重要作用,但径行以字面含义解释宪法并不可取。宪法解释是一件复杂的工作,需要权衡比较各种因素后选择。突破字面含义解释宪法十分常见。就《宪法》第86条而言,宪法通过前和通过时的史实说明,该条不应采字面含义解释而应采实质解释,即部长、委员会主任可以包括中国人民银行行长。为解决立法过程中的合宪性争议,当宪法文本具有足够解释空间时,应通过解释宪法而非修改宪法化解争议,且宜在立法程序外单独启动。

Controversies over constitutionality often arise in legislation.During the revision process of the Organic Law of the State Council,it is alleged that the provision stipulating that the Governor of the People's Bank of China is a member of the State Council is inconsistent with Article 86 of the Constitution.The judgment of constitutionality cannot be drawn directly by comparing the bill text with the constitution text,but requires the interpretation of the constitution text first.When interpreting the Constitution,the literal meaning of the text plays an important role,but it is not advisable to interpret the Constitution with the literal meaning before weighing and comparing other possible interpretations.Constitutional interpretation is a complex matter,and it is necessary to weigh and compare various factors before making a choice.It is very common to interpret the Constitution beyond the literal meaning.Historical facts before and at the time of the adoption of the Constitution indicate that Article 86 should not be interpreted literally but in substance,that is,ministers and committee directors can include the governor.In order to resolve constitutionality disputes during the legislative process,when the constitutional text has sufficient room for interpretation,the dispute should be resolved by interpreting the Constitution rather than amending the Constitution,and the interpretation should be done separately outside the legislative process.