论政府权力清单的合法性审查

根据《指导意见》，推行权力清单制度，应该“抓好清权、减权、制权、晒权等主要环节”，对清理后保留的职权“应该逐条逐项进行合法性、合理性和必要性审查”。然而，政府权力清单编制中存在“权力”归属判断失当、“权力”范围过度扩张与权力清单的功能定位偏离等问题。权力清单的法律边界包括形式上权力依据的有效性与实质上权力转化的合理性两个层面，通过运用合法性控制手段保证政府权力清单的形式要求与实质标准相互统一，有利于实现权力清单的规则之治。权力清单基准法是权力清单中“权力”来源的合法性基础，权力清单编制包括清单基准法清理与权力分类合成两个阶段，只有完成权力清单基准法的合法性审查，才能依据权力清单基准法对行政权力进行清理、分类、汇集与合法性审查。建议分别从审查主体、审查内容、审查方式、审查程序四个层次构建权力清单基准法的合法性审查机制，间接实现对政府编制权力清单的立法规制。

On the Legality Review of the List of Government Powers

According to the "guiding opinions",in order to carry out the list system,we should "do a good job in the main links such as clearing power,reducing power,controlling right,releasing right and so on",and the functions and powers retained after cleaning should be examined item by item,and the legitimacy,rationality and necessity should be examined one by one.However,there are some problems in the compilation of government power list,such as improper judgment of the attribution of "power",excessive expansion of the scope of "power" and deviation of the functional orientation of power list.The legal boundary of the power list includes two aspects:the validity of the formal power basis and the rationality of the power transformation in essence.It is beneficial to realize the rule of the list of powers by means of legality control to ensure the unification of the formal requirements and substantive standards of the list of powers.The benchmark law of the list of powers is the legitimate basis of the source of "power" in the list of powers.The compilation of the list of powers includes two stages:the review of the list of powers and the classification and synthesis of powers.Only after the review of the list of powers can administrative powers be sorted out,classified and collected according to the list of powers.It is suggested that the legitimacy review mechanism of the power list benchmark law should be constructed from the four levels of the examination subject,the examination content,the examination method and the review procedure,so as to indirectly realize the legislative regulation of the government's compilation of the power list.