全国人大常委会在宪法实施中的创制行为及其界限——以“辽宁贿选案”为例

“辽宁贿选案”发生后,该省人大常委会无法正常开会履职。对此,全国人大常委会决定成立辽宁省十二届人大七次会议筹备组,代行该省人大常委会的部分职权。这被认为是宪法上的创制性安排。全国人大常委会的创制超出了宪法文本,不是宪法解释行为,也不是宪法续造行为,而是宪法建造行为。政治主体在面对宪法僵局时主动实施宪法,建造出民主集中制原则的具体内容和人民代表大会制度的新内涵,有效解决僵局并发展宪法。这并非孤例。全国人大常委会还曾在“总理辞职案”中进行过创制。创制需要符合一定的条件,前提是出现了必须创制的环境、没有可直接适用的宪法规则,方法是按照法定程序作出政治选择,形式是发布决定而非立法。创制具有宪法法律界限和合理性界限。政治主体要选择恰当的宪法原则和制度进行创制,所创制的内容要符合比例原则。创制是全国人大常委会掌握的一种新宪法工具,表明我国宪法实施具有政治主体与宪法互动的特征。

On the Creative Arrangement by the Standing Committee of the National People's Congress during the Implementation of the Constitution and Its Boundaries--Take Liaoning Election Bribery Case as an Example

After the Liaoning Election Bribery Case happened,the Standing Committee of People’s Congress of Liaoning Province could not hold a meeting to perform its duties.Thus,the Standing Committee of the National People's Congress(NPC)decided to establish the preparatory group for the 7th session of e 12th People's Congress of Liaoning Province to perform part of the functions and powers of the Standing Committee of People's Congress of such province.This is considered to be a creative arrangement in the Constitution.The creative arrangement by the Standing Committee of the NPC is beyond the text of the Constitution.It is not a constitutional interpretation,but a constitutional construction.The political actor,in the face of the constitutional deadlock,takes the initiative to implement the constitution,constructs the specific content of the principle of democratic centralism and the new connotation of the system of People's Congress,so as to solve the deadlock and develop the Constitution.It is not an isolated case.The Standing Committee of the NPC created a system in the case of Premier's Resignation in 1987.The creative arrangement requires certain conditions.The premise is that circumstances arise that necessitate such creative arrangement and there is no constitutional rules applicable directly.The method is that the Standing Committee of the NPC makes political choices in accordance with legal procedures,in the form of issuing a decision rather than legislation.The creating arrangement is limited by the Constitution,laws and rationality.The political actor should select appropriate constitutional principles and systems to make a creative arrangement,and the content of the creative arrangement should conform to the principle of proportionality.The creative arrangement is a new constitutional tool held by the Standing Committee of the NPC,which shows the characteristic of interaction between the political actor and the Constitution in the implementation of the Constitution of China.