作者：秦小建
作者介绍：中南财经政法大学法学院教授
出版日期：2023年2月9日
内容提要 全国人大常委会授权产生了职权转移的效果，引发职权主体、职能、程序和责任形式的变化，可谓是一种隐蔽的宪制变动，因此要从权力配置视角来审视其影响。宪法把权力配置给特定国家机关，既有权力性质的要求，亦有功能适当的考虑。如若随意转移职权，就会破坏权力配置背后的对应关系。但为满足实践需要，宪法权力结构预留了权宜调整的空间，授权构成宪法进行权宜调整的规范机制。根据功能适当原则的指引，授权确定了最适合实现职能的机关，促进民主正当和有效治理在特定事务上的功能耦合。必要而负责任的授权，须考虑其与权力结构的契合，从“所授之权为自身之权”“所授之权为可授之权”“授权具有明确性”“所授之权适合被授权机关行使”“授权机关设置民主控制机制”等展开“阶层式”的合宪性分析。
关键词 授权改革试点 权力配置 权力混合 功能适当原则 合宪性
Abstract: The delegation of the Standing Committee of the National People’s Congress has produced the effect of the transfer of powers and triggered the changes of the subject of powers, functions, procedures and liability forms. It can be said that it is a kind of hidden constitutional change. Therefore, its influence should be examined from the perspective of power allocation. The Constitution allocates power to specific state organs, taking into account both the nature of power and the requirements of appropriate functions. If the power is transferred at will, the corresponding relationship behind power allocation will be destroyed. However, to meet the practical needs, the power structure of the Constitution leaves the space for expedient adjustment. The delegation establishes the normative mechanism for the expedient adjustment of the Constitution. According to the guidance of the principle of appropriate functions, the delegation determines the most suitable organs to realize their functions, promoting the functional coupling of democratic legitimacy and effective governance in specific affairs. Necessary and responsible authorization shall be considered in accordance with the power structure, and the stratified constitutionality analysis should be carried out from ‘whether the power authorized is own’, ‘whether the power granted is available’, ‘whether the power is specific’, ‘whether the power is suitable for the authorized agency’ and ‘whether it has set up a democratic control mechanism’