全國人民代表大會：制度穩定型權力機關

對於最高國家權力機關，僅從地位、重要性等視角仍不足以充分反映其機構性質及特徵。因此，需要借助歷史、規範、實踐三重維度彌補上述觀察的缺陷。就歷史背景而言，以充實全國人大常委會職權為核心的上下結構取代平行的“兩院制”方案體現了最高國家權力機關在宏觀功能上的調整，即全國人大側重于民主代議，其常委會側重於有效議決。就職權規範而言，尤其從行使頻率來看，全國人大職權具有明顯的非常態性。該特性使其更側重於例外決策，而其常委會則更側重於常規決策。就行權實踐觀之，例外決策使得全國人大決策具有明顯的穩定制度的效果。優化全國人大的功能應遵循適度擴充原則，並在實現議事資源均衡化的前提下通過觀念更新激活主觀非常態性職權，加強監督權行使，同時要防止其功能過載。

The defining character of the National People’s Congress (NPC) can’t be uncovered merely through emphasizing its supreme political status and the importance of its powers. Such a task may be achieved by taking into account historical, normative, and practical factors. From the historical perspective, abandoning the proposal of creating a bicameral system reflects a readjustment of internal functions of the NPC, under which the NPC primarily plays the representative function, while its Standing Committee becomes a more active legislature. From the normative perspective, the powers of the NPC are predominantly exceptional ones, meaning that they are less frequently utilized. And such powers further render the NPC to make unconventional decisions. From the practical perspective, the unconventional decision- making mode naturally leads to the stabilization of laws and institutions. To further improve its functions, the NPC needs to abandon its hesitation on the utilization of some powers and enhance supervision, while avoid over-utilization.