“网络安全审查制度”是维护我国国家安全的一项法律制度，具有涉外法律制度属性。但是关于“网络安全审查”的概念为何、“网络安全审查”行为的法律性质、网络安全审查制度的应有功能要义及其同其他类型制度尤其是其他类型安全审查制度之间的关系等现实问题，则尚未得到新近的充分研究。这样的研究缺位不仅使得我国对于网络安全审查制度的应有定位认识可能出现偏离，更不利于长远而言的国家安全制度体系建设。

从目前网络安全审查制度的发展预期而言，其在今后必然得到进一步的应用，因而对该制度不宜进行重构式研究，而应当基于现有的制度特点，对其如何完善进行细化式研究。在2021年《网络安全审查办法》正式修订之后，关于该制度的系统性、全面性、展望性研究尚显缺位，这样的研究态势同当前法治建设的节奏要求不甚相符，因而本文即弥补此种空缺，以总体国家安全观为指导对该制度进行深入研究。

具体而言，本文首先对“总体国家安全观”和“网络安全审查制度”进行学理性的概述，阐明当前我国总体国家安全观的发展演进及其理论地位，建构起“总体国家安全观-网络安全-网络安全审查制度”的“倒金字塔式”认知逻辑关系，而后从制度本体的方式分析“网络安全审查制度”的法理内涵，旨在为全文建立起“何为网络安全审查制度”的基础性认识。而后，第二章梳理网络安全审查制度的发展历程和典型案例，首先从我国网络安全审查制度建立之初的域外考察有关内容进行切入分析，探讨国外网络安全治理有关实践对我国网络安全审查制度建立、实施与完善的影响，进而从静态规则演进和动态案例实践两个维度加深对于网络安全审查制度的实施认识。第三章在前述基础上，对网络安全审查制度的若干理论争议问题进行辨析，主要涉及理清网络安全审查行为的法律性质、以总体国家安全观为指导明确若干问题的处理方式和网络安全审查制度今后应当如何发展三方面问题。具体而言，第三章提出应当在“国家行为”和“行政行为”之间合理辨析网络安全审查行为的法理特征，以总体国家安全观为指导明确网络安全审查制度得以实施的基础在于坚持“网络主权”立场，网络安全审查制度的实施应当符合非传统安全的治理特点，遵循国家安全法治的逻辑约束，并从“网络强国”有关重要论述中发现网络安全审查制度的“有序”“加强”“依法”三大发展预期，进而形成关于“网络安全审查制度如何完善”的学理分析基础。在第五章中，本文提出网络安全审查制度的对象范围宜在相对安全理念指导下和以制度协调为要义予以确定；审查机构可从横向部际协作的成员单位适当扩容和纵向央地协作的试点实施两个方面展开探索；审查标准完善方面可构建网络安全审查的技术标准和政治标准有机互动、鼓励市场主体参与优化网络安全技术标准、以法治思维把握审查标准判断以避免出现“安全泛化”或“安全淡化”效果以及同国家安全治理语境中的其他制度有机配合以期提升标准把握能力等；审查程序可以限制启动主体而避免网络安全审查权限泛化、以设置审查前咨询制度以提升运行效率和探索发挥专家咨询制度独有功能；网络安全审查权益救济机制可进一步通过完善诉求受理机制、探索建立行政复议机制和针对程序合法性的行政诉讼机制（含检察监督）予以完善；并注重国家安全制度框架顶层设计、网络安全审查制度透明度提升和全民网络安全文化教育等方式助力网络安全审查制度实施的法治效果持续提升。

总而言之，本文的研究有助于填补现阶段网络安全审查制度系统研究的不足，并为未来网络安全、国家安全治理相关制度的完善提供相应的思考积累。

ABSTRACT

"Cybersecurity review system" is a legal system to protect China's national security, with foreign-related legal system characteristics. However, as for the concept of "cybersecurity review", the legal nature of "cybersecurity review", the function of cybersecurity review system and its relationship with other types of systems, especially other types of security review systems, all those practical problems have not been fully studied recently. Such a lack of research not only makes China's understanding of the proper positioning of the cybersecurity review system may deviate, but also is not conducive to the long-term construction of the national security system. As far as the development of the current cybersecurity review system is concerned, it is bound to be further applied in the future, so it is not appropriate to conduct a reconstruction study of this system, but should conduct a detailed study on how to improve it based on the characteristics of the existing system. After the official revision of the Cybersecurity Review Measures in 2021, a research with systematic, comprehensive, and prospective characteristics on the system is still lacking, which is imperfectly consistent with the rhythm of the current rule of law construction. Therefore, this paper will make up for this gap and conduct in-depth research on the system under the guidance of the holistic approach to national security.

To be specific, this paper first makes a scientific overview of "the holistic approach to national security" and "cybersecurity review system", expounds the evolution and theoretical status of China's current concept of the holistic approach to national security, and constructs an "inverted pyramid" cognitive logic relationship of "the holistic approach to national security - cybersecurity - cybersecurity review system". Then it analyzes the legal connotation of "cybersecurity review system" from the way of system ontology, aiming to establish the basic understanding of "what is cybersecurity review system" for the full text. The second chapter combs the development history and typical cases of the cybersecurity review system. Firstly, it analyzes the relevant contents of the overseas reference at the beginning of the establishment of China's cybersecurity review system, and discusses the influence of foreign cyebrsecurity governance practices on the establishment, implementation and improvement of China's network security review system. Then from static rule evolution and dynamic case practice two dimensions to deepen the understanding of the implementation of cybersecurity review system. On the basis of the foregoing, the third chapter analyzes several theoretical discussions on the cybersecurity review system, mainly involving three aspects which are clarifying the legal nature of the cybersecurity review behavior, clarifying the handling methods of several issues under the guidance of the holistic approach to national security, and how the cybersecurity review system should develop in the future. To be specific, in the third chapter, this paper will clearly point out that China's cybersecurity review should not be understood as the exapmle to the theory of "act of state", and the implementation of cybersecurity review system should practice the concept of cyberspace sovereignty, follow the principles of non-traditional security governance and the basic way of national security rule of law. And three major development expectations of "orderly", "strengthening" and "law-based" cybersecurity review system are refined from the President Xis important discussion on building strength in cyberspace, thus forming the theoretical analysis basis for "how to improve the cybersecurity review system". The fourth chapter, based on the rules themselves and the corresponding findings in the case review, puts forward a series of problems that the cybersecurity review system faces or may face in the future development process by discussing each element separately. In Chapter 5, this paper proposes that the scope of the cybersecurity review system should be determined under the guidance of the concept of relative security and system coordination. The review institutions can explore the appropriate expansion of the member units of horizontal inter-ministerial cooperation and the pilot implementation of vertical central-local cooperation. In terms of the improvement of review standards, organic interaction between technical standards and political standards of cybersecurity review can be constructed, and market players should be encouraged to participate in the optimization of cybersecurity technical standards, and the judgment of review standards should be mastered with the rule of law thinking to avoid the effect of "security generalization" or "security dilution", and other systems in the context of national security governance can be organically coordinated to improve the ability to understand the standards of cybersecurity review. The review procedure can limit the initiator to avoid the generalization of the cybersecurity review power. And it is good methods worthy trying to set up the pre-review consultation system to improve the operation efficiency and explore the unique function of the expert consultation system. The cybersecurity review rights and interests relief mechanism can be further improved by improving the appeal acceptance mechanism, exploring the establishment of administrative reconsideration mechanism and administrative litigation mechanism targeting the legality of procedures (including the procuratorial supervision). And what should also be mentioned here is to pay attention to the top-level design of the national security system framework, the improvement of the transparency of the cybersecurity review system and the national cybersecurity culture education to help the rule of law effect of the implementation of the cybersecurity review system to continue improving.

All in all, the study of this paper helps to fill the deficiency of research on the current cybersecurity review system, and definitely provides corresponding thinking accumulation for the improvement of future cybersecurity and national security governance related systems.