論人大非立法性規範性檔的功能與效力

On the Functions and Effect of the Non-legislative Normative Documents of the National People’s Congress

人大的非立法性規範性檔，是立法性規範性檔的重要補充，是人大運用重大事項決定權對國家機關活動和社會事務進行規範性管理的重要形式。但目前這種文件在表現形式上存在不清晰且易與立法性文件混同的問題，其功能範圍與效力在理論上與實踐中亦不甚清晰，致使人大特別是地方人大在發揮決策與管理職能時過度地依賴立法權，將一些不應立法的事項勉強拉入立法，既造成立法負擔過重，又阻礙了重大事項決定權職能的充分發揮。為解決這些問題，本文對人大非立法性規範性檔的功能與效力做了梳理說明，對這一類文件的表現形式存在的缺陷亦提出了完善意見。

Non-legislative normative document of the NPC are important supplements to legislative normative documents. It also serves as a significant approach for the NPC to regulate the activities of state organs and social affairs by exercising the power to decide on significant matters. However, so far, this document is neither clear on its form and therefore indistinguishable from legislative instrument, nor clear on its functions and effect in theory in practice. This has caused over-reliance of the NPC, the Local People’s Congress in particular, on legislative power in the process of decision-making and management. For that reason, affairs that should not be legislated has been included into legislation, leading to a legislative burden and blocking the full play of decision making of significant matters. To solve these problems, this paper sorts out the functions and effect of the non-legislative normative documents of the NPC, and also put forward some suggestions for improving the problems of the form of these documents.