党内法规和行政法规使用名称辨析
<p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><span style="max-width: 100%; font-size: 16px; box-sizing: border-box !important;">2002年1月，由国务院颁布施行的《行政法规制定程序条例》，规范行政法规制定程序。2013年5月，《中国共产党党内法规制定条例》发布，规范了党内法规制定工作。在两个条例执行过程中，不少从事法规和规范性文件工作的同志对法规名称使用有一些困惑，这里笔者谈些个人学习体会，供大家参考。</span></p><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><span style="max-width: 100%; font-size: 16px; box-sizing: border-box !important;"></span></p><p style="max-width: 100%; clear: both; min-height: 1em; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><br style="max-width: 100%; box-sizing: border-box !important;"></p><fieldset style="margin-top: 0.5em; margin-bottom: 0.5em; max-width: 100%; min-width: 0px; border: 0px; font-family: 微软雅黑; font-size: 12px; line-height: 25px; box-sizing: border-box !important;"><section style="max-width: 100%; box-sizing: border-box; height: 1em;"><section class="main1" style="max-width: 100%; height: 16px; width: 1.5em; float: left; border-top-width: 0.4em; border-top-style: solid; border-color: rgb(0, 112, 192); border-left-width: 0.4em; border-left-style: solid; box-sizing: border-box !important;"></section><section class="main2" style="max-width: 100%; height: 16px; width: 1.5em; float: right; border-top-width: 0.4em; border-top-style: solid; border-color: rgb(0, 112, 192); border-right-width: 0.4em; border-right-style: solid; box-sizing: border-box !important;"></section></section><section class="main3" style="margin: -0.8em 0.1em -0.8em 0.2em; padding: 0.8em; max-width: 100%; box-sizing: border-box; border: 1px solid rgb(0, 112, 192); border-top-left-radius: 0.3em; border-top-right-radius: 0.3em; border-bottom-right-radius: 0.3em; border-bottom-left-radius: 0.3em;"><section style="max-width: 100%; border: none; line-height: 1.4; word-break: break-all; font-size: 1em; font-family: inherit; text-align: center; text-decoration: inherit; background-image: none; box-sizing: border-box !important;"><span style="max-width: 100%; color: rgb(0, 112, 192); box-sizing: border-box !important;"><strong style="max-width: 100%; box-sizing: border-box !important;"><span style="max-width: 100%; font-size: 18px; box-sizing: border-box !important;"><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; box-sizing: border-box !important;">党内法规和行政法规使用名称不尽相同</p></span></strong></span></section></section><section style="max-width: 100%; box-sizing: border-box; height: 1em;"><section class="main4" style="max-width: 100%; height: 16px; width: 1.5em; float: left; border-bottom-width: 0.4em; border-bottom-style: solid; border-color: rgb(0, 112, 192); border-left-width: 0.4em; border-left-style: solid; box-sizing: border-box !important;"></section><section class="main5" style="max-width: 100%; height: 16px; width: 1.5em; float: right; border-bottom-width: 0.4em; border-bottom-style: solid; border-color: rgb(0, 112, 192); border-right-width: 0.4em; border-right-style: solid; box-sizing: border-box !important;"></section></section></fieldset><p style="max-width: 100%; clear: both; min-height: 1em; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><br style="max-width: 100%; box-sizing: border-box !important;"></p><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><strong style="max-width: 100%; box-sizing: border-box !important;"><span style="max-width: 100%; color: rgb(227, 108, 9); box-sizing: border-box !important;">《中国共产党党内法规制定条例》规定：党内法规的名称为党章、准则、条例、规则、规定、办法、细则。《行政法规制定程序条例》规定：行政法规的名称一般称“条例”，也可以称“规定”“办法”等。</span></strong>由此可见，对党内法规的名称已作出十分明确的规定，而对行政法规的名称规定有点模糊。但在工作实践中，行政法规也使用了规则、细则这两个名称，比如《国务院工作规则》《国家体育总局工作规则》，还有一些法律和条例的实施细则等。</p><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><br style="max-width: 100%; box-sizing: border-box !important;"></p><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><strong style="max-width: 100%; box-sizing: border-box !important;"><span style="max-width: 100%; color: rgb(227, 108, 9); box-sizing: border-box !important;">通过以上梳理可见，党内法规的名称比行政法规多出两个，即党章、准则。</span></strong>党章对党的性质和宗旨、路线和纲领、指导思想和奋斗目标、组织原则和组织机构、党员义务和权利以及党的纪律等作出根本规定。准则对全党政治生活、组织生活和全体党员行为作出基本规定。<strong style="max-width: 100%; box-sizing: border-box !important;"><span style="max-width: 100%; color: rgb(227, 108, 9); box-sizing: border-box !important;">条例、规则、规定、办法、细则属于党内法规和行政法规共用名称，党政机关使用的方法也没有原则性区别，</span></strong>条例对某一领域重要关系或者某一方面重要工作作出全面规定，规则、规定、办法、细则对某一方面重要工作或者事项作出具体规定。</p><p style="max-width: 100%; clear: both; min-height: 1em; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><br style="max-width: 100%; box-sizing: border-box !important;"></p><fieldset style="margin-top: 0.5em; margin-bottom: 0.5em; max-width: 100%; min-width: 0px; border: 0px; font-family: 微软雅黑; font-size: 12px; line-height: 25px; box-sizing: border-box !important;"><section style="max-width: 100%; box-sizing: border-box; height: 1em;"><section class="main1" style="max-width: 100%; height: 16px; width: 1.5em; float: left; border-top-width: 0.4em; border-top-style: solid; border-color: rgb(0, 112, 192); border-left-width: 0.4em; border-left-style: solid; box-sizing: border-box !important;"></section><section class="main2" style="max-width: 100%; height: 16px; width: 1.5em; float: right; border-top-width: 0.4em; border-top-style: solid; border-color: rgb(0, 112, 192); border-right-width: 0.4em; border-right-style: solid; box-sizing: border-box !important;"></section></section><section class="main3" style="margin: -0.8em 0.1em -0.8em 0.2em; padding: 0.8em; max-width: 100%; box-sizing: border-box; border: 1px solid rgb(0, 112, 192); border-top-left-radius: 0.3em; border-top-right-radius: 0.3em; border-bottom-right-radius: 0.3em; border-bottom-left-radius: 0.3em;"><section style="max-width: 100%; border: none; line-height: 1.4; word-break: break-all; font-size: 1em; font-family: inherit; text-align: center; text-decoration: inherit; background-image: none; box-sizing: border-box !important;"><span style="max-width: 100%; color: rgb(0, 112, 192); box-sizing: border-box !important;"><strong style="max-width: 100%; box-sizing: border-box !important;"><span style="max-width: 100%; font-size: 18px; box-sizing: border-box !important;"><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; box-sizing: border-box !important;">党内法规和行政法规名称使用主体不同</p></span></strong></span></section></section><section style="max-width: 100%; box-sizing: border-box; height: 1em;"><section class="main4" style="max-width: 100%; height: 16px; width: 1.5em; float: left; border-bottom-width: 0.4em; border-bottom-style: solid; border-color: rgb(0, 112, 192); border-left-width: 0.4em; border-left-style: solid; box-sizing: border-box !important;"></section><section class="main5" style="max-width: 100%; height: 16px; width: 1.5em; float: right; border-bottom-width: 0.4em; border-bottom-style: solid; border-color: rgb(0, 112, 192); border-right-width: 0.4em; border-right-style: solid; box-sizing: border-box !important;"></section></section></fieldset><p style="max-width: 100%; clear: both; min-height: 1em; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><br style="max-width: 100%; box-sizing: border-box !important;"></p><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><strong style="max-width: 100%; box-sizing: border-box !important;"><span style="max-width: 100%; color: rgb(227, 108, 9); box-sizing: border-box !important;">按照《中国共产党党内法规制定条例》的规定，党的中央组织以及中央纪律检查委员会、中央各部门和省、自治区、直辖市党委，是党内法规制定的主体。</span></strong>因此，制定党内法规必须有与之相符合的权限，党内法规名称的使用也与制定主体的权限相一致。党内法规名称中，党章、准则、条例只能由中共中央制定党内法规时使用，中央纪委、中央各部门和省、自治区、直辖市党委则只能使用规则、规定、办法、细则这几个名称。</p><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><br style="max-width: 100%; box-sizing: border-box !important;"></p><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;">《中华人民共和国宪法》第八十九条第一款规定，国务院可“根据宪法和法律，规定行政措施，制定行政法规，发布决定和命令。”即明确<strong style="max-width: 100%; box-sizing: border-box !important;"><span style="max-width: 100%; color: rgb(227, 108, 9); box-sizing: border-box !important;">行政法规制定主体为国务院。</span></strong>《行政法规制定程序条理》规定，国务院各部门和地方人民政府制定的规章不得称“条例”。</p><p style="max-width: 100%; clear: both; min-height: 1em; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><br style="max-width: 100%; box-sizing: border-box !important;"></p><fieldset style="margin-top: 0.5em; margin-bottom: 0.5em; max-width: 100%; min-width: 0px; border: 0px; font-family: 微软雅黑; font-size: 12px; line-height: 25px; box-sizing: border-box !important;"><section style="max-width: 100%; box-sizing: border-box; height: 1em;"><section class="main1" style="max-width: 100%; height: 16px; width: 1.5em; float: left; border-top-width: 0.4em; border-top-style: solid; border-color: rgb(0, 112, 192); border-left-width: 0.4em; border-left-style: solid; box-sizing: border-box !important;"></section><section class="main2" style="max-width: 100%; height: 16px; width: 1.5em; float: right; border-top-width: 0.4em; border-top-style: solid; border-color: rgb(0, 112, 192); border-right-width: 0.4em; border-right-style: solid; box-sizing: border-box !important;"></section></section><section class="main3" style="margin: -0.8em 0.1em -0.8em 0.2em; padding: 0.8em; max-width: 100%; box-sizing: border-box; border: 1px solid rgb(0, 112, 192); border-top-left-radius: 0.3em; border-top-right-radius: 0.3em; border-bottom-right-radius: 0.3em; border-bottom-left-radius: 0.3em;"><section style="max-width: 100%; border: none; line-height: 1.4; word-break: break-all; font-size: 1em; font-family: inherit; text-align: center; text-decoration: inherit; background-image: none; box-sizing: border-box !important;"><span style="max-width: 100%; color: rgb(0, 112, 192); box-sizing: border-box !important;"><strong style="max-width: 100%; box-sizing: border-box !important;"><span style="max-width: 100%; font-size: 18px; box-sizing: border-box !important;"><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; box-sizing: border-box !important;">准确把握法规名称使用时的几种情况</p></span></strong></span></section></section><section style="max-width: 100%; box-sizing: border-box; height: 1em;"><section class="main4" style="max-width: 100%; height: 16px; width: 1.5em; float: left; border-bottom-width: 0.4em; border-bottom-style: solid; border-color: rgb(0, 112, 192); border-left-width: 0.4em; border-left-style: solid; box-sizing: border-box !important;"></section><section class="main5" style="max-width: 100%; height: 16px; width: 1.5em; float: right; border-bottom-width: 0.4em; border-bottom-style: solid; border-color: rgb(0, 112, 192); border-right-width: 0.4em; border-right-style: solid; box-sizing: border-box !important;"></section></section></fieldset><p style="max-width: 100%; clear: both; min-height: 1em; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><br style="max-width: 100%; box-sizing: border-box !important;"></p><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><strong style="max-width: 100%; box-sizing: border-box !important;"><span style="max-width: 100%; color: rgb(227, 108, 9); box-sizing: border-box !important;">一是现存的一些法规有的没有使用法规名称。</span></strong>有关党内法规和行政法规制定的两个条例颁布前，除了上述七类法规名称外，制定机关还使用过决议、决定、意见、通知等作为法规的名称，这些虽然使用的是规范性文件的名称，但实际上是法规。两个条例颁布后，经过法规清理，有些法规中有效部分仍然可以继续适用。</p><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><br style="max-width: 100%; box-sizing: border-box !important;"></p><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><strong style="max-width: 100%; box-sizing: border-box !important;"><span style="max-width: 100%; color: rgb(227, 108, 9); box-sizing: border-box !important;">二是法规名称不能作为公文种类使用。</span></strong>法规规章要施行，必须以一定形式来发布，发布形式主要是文件。党政机关制发文件，必须执行《党政机关公文处理工作条例》，严格使用该条例规定的文种。因此，不论什么名称的法规规章都需要一个公文文种配合来印发，党内法规一般以通知形式发布，行政法规规章一般以命令（令）形式发布。</p><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><br style="max-width: 100%; box-sizing: border-box !important;"></p><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><strong style="max-width: 100%; box-sizing: border-box !important;"><span style="max-width: 100%; color: rgb(227, 108, 9); box-sizing: border-box !important;">三是规范性文件也可以使用有些法规名称。</span></strong>对于有法规制定权限的主体，制定法规时必须使用法规名称，用条款形式表述。对于没有法规制定权限的主体，制定规范性文件时也可以像使用规划、计划、方案、要点、总结等名称一样，使用规则、规定、办法、细则这四类名称，同时搭载法定公文文种制发，但不能视为法规。比如，《国务院工作规则》颁布后，一些省级和省辖市人民政府也制发了工作规则，但没有法规制定权限的省辖市制定的只能作为规范性文件。鉴于此，为了避免混乱，要慎用法规名称。</p><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><br style="max-width: 100%; box-sizing: border-box !important;"></p><p style="max-width: 100%; clear: both; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); font-family: 'Helvetica Neue', Helvetica, 'Hiragino Sans GB', 'Microsoft YaHei', Arial, sans-serif; font-size: 16.153846740722656px; line-height: 19.230770111083984px; box-sizing: border-box !important;"><span style="max-width: 100%; color: rgb(255, 0, 0); box-sizing: border-box !important;">（文章摘自《秘书工作》杂志2014年第10期。作者：张敬华）</span></p><p></p>
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