作　者：喻少如 许柯
关键词：监察法规；备案审查；法治监督；党内法规；双轨审查；“一体监督”；国家监察体制改革
摘　要：

监察法规在内容上横跨党内法规和国家法律双重领域，具有极强的特殊性，体现了中国法治的“复规范性”特征。基于监察法规制定权“法政二元属性”及其对备案审查塑造的制度逻辑、监察法规制定权“立法留白”所形成的现实逻辑、依法治国与依规治党有机统一的理论逻辑，监察法规备案审查制度建设应当遵循党内法规与国家法律“一体监督”的逻辑。目前单轨式的备案审查机制不能完全适应监察法规双重属性的内在要求，面临着标准、程序与主体三方面的法治监督困境。其中，宽泛的政治性审查标准制约了备案审查制度政治功能的有效发挥，审查程序的封闭性削弱了备案审查意见的可接受性，单一审查主体无法有效监督监察法规“涉纪涉法”条款的合法合规性。构建贯通党内法规和国家法律的“双轨统合”备案审查制度，首先需要通过完善监察法规备案审查的政治标准和法律标准构建统一备案审查的标准机制，也需要通过优化监察法规备案审查的启动程序、沟通交流程序与意见公开程序构建统一备案审查的运行机制，还需要通过党内法规与国家法律备案审查机关之间的主体衔接构建统一备案审查的组织机制。

 

The Legal Supervision Logic and Mechanism Construction Of Record and Review System of Supervision Regulations

Yu Shaoru，Xu Ke (Southwestern University of Political Science and Law)

Abstract Supervision regulations are unique because they span both the fields of Party regulations and state laws in terms of content, which is the multinormativity of the rule of law in China. Based on the "binary attribute of law and politics" of the right to formulate supervisory regulations and its institutional logic in shaping the record and review system, the realistic logic formed by the "legislative reservation" of the right to formulate supervisory regulations, as well as the theoretical logic in the unity of law-based governance of the country and Party governance in accordance with regulations, the construction of the record and review system of supervisory regulations should follow the logic of "integrated supervision" with Party regulations and state laws. At present, the single-track record and review mechanism cannot fully meet the inherent requirements of the dual attributes of supervision regulations, facing the dilemma of legal supervision in terms of standards, procedures and subjects. Among them, the broad political supervision standards undermine the effectiveness of the political functions of the record and review system, the closed nature of the review procedure weakens the acceptability of the review comments, and a single review entity fails to ensure the legality and compliance of provisions related to "disciplinary and legal violations" in supervision regulations. To build a "integrated dual-track" record and review system that bridges Party regulations and state laws, it is first necessary to build a unified and standard mechanism for record and review by improving the political and legal standards for the record and review of supervisory regulations. It is also necessary to build a unified operational mechanism for record and review by optimizing the initiation procedures, communication and ex‐ change procedures and comments disclosure procedures for the record and review of supervisory regulations. Moreover, it is necessary to build a unified organizational mechanism for record and review by linking the re‐ view bodies of Party regulations and state laws.

Key words supervision regulations; record and review; legal supervision; party regulations; dual-track review; "Integrated supervision"; reform of the national supervision system

 

■    作者简介 喻少如，西南政法大学行政法学院（纪检监察学院）教授，重庆 401120；许 柯，西南政法大学行政法学院（纪检监察学院）博士研究生。

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