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| Guiding Opinions of the General Office of the State Council on Comprehensively Implementing the Legality Review Mechanism for Administrative Regulatory Documents | | 国务院办公厅关于全面推行行政规范性文件合法性审核机制的指导意见 |
| (No. 115 [2018] of the General Office of the State Council) | | （国办发〔2018〕115号） |
| The people's governments of all provinces, autonomous regions, and municipalities directly under the Central Government; all ministries and commissions of the State Council; and all institutions directly under the State Council: | | 各省、自治区、直辖市人民政府，国务院各部委、各直属机构： |
| The formulation of administrative regulatory documents (hereinafter referred to as the "regulatory documents") is an important means for administrative agencies or organizations with functions of administering public affairs as authorized by the laws and regulations (hereinafter collectively referred to as the "administrative agencies") to perform their functions according to the law. The legality review of regulatory documents is an important measure to ensure that the regulatory documents issued by administrative agencies are legal and valid. The comprehensive implementation of the legality review mechanism for regulatory documents is a requisite requirement for advancing law-based government administration and building a government under the rule of law and is conducive to safeguarding the unity of the country's legal system and the uniformity of policies and orders, preventing illegal documents from being issued at root, promoting administrative agencies in enforcing the law in a strict, well-regulated, impartial and decent manner, and protecting the lawful rights and interests of citizens, legal persons and other organizations. The Decision of the CPC Central Committee on Certain Major Issues concerning Comprehensively Deepening the Reform proposed that the legality review mechanism for regulatory documents be improved. The Implementation Program for the Building of a Government under the Rule of Law (2015-2020) issued by the CPC Central Committee and the State Council requires that regulatory document development procedures be improved and that the legality review system be implemented. For the purposes of fully implementing the legality review mechanism for regulatory documents, with the approval of the CPC Central Committee and the State Council, the following opinions are hereby offered. | | 制定行政规范性文件（以下简称规范性文件）是行政机关或者经法律、法规授权的具有管理公共事务职能的组织（以下统称行政机关）依法履行职能的重要方式。对规范性文件进行合法性审核是确保行政机关出台的规范性文件合法有效的重要措施。全面推行规范性文件合法性审核机制，是推进依法行政、建设法治政府的必然要求，有利于维护国家法制统一、政令统一，有利于从源头上防止违法文件出台、促进行政机关严格规范公正文明执法，有利于保障公民、法人和其他组织的合法权益。《中共中央关于全面深化改革若干重大问题的决定》提出，要完善规范性文件合法性审核机制。中共中央、国务院印发的《法治政府建设实施纲要 |
| I. General requirements | | 一、总体要求 |
| 1. Guiding ideology. Xi Jinping Thought on Socialism with Chinese Characteristics in a New Era shall be used as the guidance, the spirit of the 19th CPC National Congress and the Second and Third Plenary Sessions of 19th CPC Central Committee shall be comprehensively implemented, and the decisions and arrangements of the CPC Central Committee and the State Council shall be conscientiously carried out, so as, according to the requirements of concurrent advancement of law-based governance, law-based exercise of state power and law-based government administration and integrated building of the rule of law for the country, government and society, to comprehensively implement the legality review mechanism for regulatory documents, safeguard the unity, dignity and authority of the country's legal system, accelerate the building of a government under the rule of law, and improve the governance capabilities of the government. | | （一）指导思想。以习近平新时代中国特色社会主义思想为指导，全面贯彻党的十九大和十九届二中、三中全会精神，认真落实党中央、国务院决策部署，按照依法治国、依法执政、依法行政共同推进，法治国家、法治政府、法治社会一体建设的要求，全面推行规范性文件合法性审核机制，维护国家法制统一、尊严、权威，加快建设法治政府，提高政府治理能力。 |
| 2. Primary objectives. The scope, objects, procedures and duties of and the responsibilities for the legality review of regulatory documents shall be further specified, a legality review mechanism with sound procedures and powers consistent with responsibilities, mutually articulated, and in efficient operation shall be established and improved, the requirements for the review work shall be implemented, and organizational guarantees shall be enhanced, so as to ensure that all regulatory documents are subject to legality review and that regulatory documents are legal and valid. | | （二）主要目标。进一步明确规范性文件合法性审核的范围、主体、程序、职责和责任，建立健全程序完备、权责一致、相互衔接、运行高效的合法性审核机制，落实审核工作要求，加大组织保障力度，确保所有规范性文件均经过合法性审核，保证规范性文件合法有效。 |
| II. Strictly implementing working measures | | 二、严格落实工作措施 |
| 3. Specifying the scope of review. All regions and authorities shall, in light of the actual work, determine the criteria and scope for inclusion in the legality review of regulatory documents from the aspects such as developing agencies, kinds of official documents, and administrative matters, prepare a list of regulatory documents developing agencies, clarify the kinds of official documents for regulatory documents, and set forth the categories of administrative matters under regulatory documents. A regulatory document concerning the rights and obligations of citizens, legal persons or other organizations shall be included in the scope of legality review so as to ensure full coverage and due review. Administrative norms, working systems, staffing, meeting minutes, work plans, requests and reports, commendation and punishments, personnel appointments and removals, and other documents in force within administrative agencies need not be included in the scope of legality review of regulatory documents. | | （三）明确审核范围。各地区、各部门要结合工作实际，从制定主体、公文种类、管理事项等方面，确定纳入规范性文件合法性审核的标准和范围，编制规范性文件制定主体清单，明确规范性文件的公文种类，列明规范性文件管理事项类别。凡涉及公民、法人和其他组织权利义务的规范性文件，均要纳入合法性审核范围，确保实现全覆盖，做到应审必审。行政机关内部执行的管理规范、工作制度、机构编制、会议纪要、工作方案、请示报告及表彰奖惩、人事任免等文件，不纳入规范性文件合法性审核范围。 |
4. Determining review bodies. The people's governments at all levels and their departments shall specify the authorities or agencies charged with the legality review of regulatory documents (hereinafter collectively referred to as the "review agencies"). A regulatory document which is issued in the name of the people's government at or above the county level or its general office, or which is drafted by a department of the people's government at or above the county level and issued in the name of the department with the approval of the said government at request shall be reviewed by the said people's government; and if the drafting authority specifies a special review agency, the review agency shall conduct the review. A regulatory document formulated by a department of the State Council shall be reviewed by the review agency of the department. A regulatory document developed by a department of the people's government of a province, autonomous region, municipality directly under the Central Government or city divided into districts shall be reviewed by the review agency of the department, or may be reviewed by the review agency determined by the people's government at the same level as actually needed. A regulatory document developed by a department of a county (city or district) people's government, by a town (township) people's government, or by a sub-district office shall be reviewed by its special review agency or special reviewer, if such an agency or reviewer is specified, or failing that, by the review agency determined by the county (city, district) people's government in a unified manner.
．．．．．． | | （四）确定审核主体。各级人民政府及其部门要明确具体承担规范性文件合法性审核工作的部门或者机构（以下统称审核机构）。以县级以上人民政府或者其办公机构名义印发的规范性文件，或者由县级以上人民政府部门起草、报请本级人民政府批准后以部门名义印发的规范性文件，由同级人民政府审核机构进行审核；起草部门已明确专门审核机构的，应当先由起草部门审核机构进行审核。国务院部门制定的规范性文件，由本部门审核机构进行审核。省、自治区、直辖市和设区的市人民政府部门制定的规范性文件，由本部门审核机构进行审核，也可以根据实际需要由本级人民政府确定的审核机构进行审核。县（市、区）人民政府部门、乡镇人民政府及街道办事处制定的规范性文件，已明确专门审核机构或者专门审核人员的，由本单位审核机构或者审核人员进行审核；未明确专门审核机构或者专门审核人员的，统一由县（市、区）人民政府确定的审核机构进行审核。
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