大众媒体、公共事件和立法供给研究——以2003-2013年公共事件为例

Mass Media,Public Events and Legislative Supply Research

通过系统收集2003年至2013年的公共事件发现媒体报道引起立法议程回应性变动的机制通常有两种:媒体主动设置某一议题,建构公众的认知,聚合和引领民意,立法议程加以回应;媒体作为沟通商谈渠道,借助对某一突发事件深入、持续性报道,挖掘和整合已有观点,推动舆论聚合形成"共识"。引起立法议程回应性变动的公共事件常发生于与公民利益密切相关领域、事件关涉各方在价值判断、治理目标和治理方案等方面能够在较短时间达成"合意"。与此相对,回应性的立法以行政法、环境法以及刑法领域居首;行政立法主体回应频率最高;回应性立法以创制方式为主。这一现象带来三点启示。第一,应当重视媒体信息和公众舆论给立法决策过程带来的新约束,在立法议程设置环节构建制度化的公众参与渠道。第二,应当采取一种综合全面的视角看待立法质量提升这一目标,对行政立法质量应施以足够重视。第三,全国人大及其常委会作为国家立法机关应当逐步增强自身的立法能力以有效回应民意。

There are two mechanisms for media induced changes of legislation agenda based on public focusing events from 2003 to 2013. The first is media actively set the agenda, and then construct, accumulate and lead the public opinion, which is finally responded by the legislation agenda. The second is media playing as the public discussion venue and therefore push forward public consensus formation through reporting and investigating public focusing events. The legislative changes can be induced when public focusing events are involved with issues of public interest and all engaged parties can reach consensus a- mong value judgments, governance goals and governance plans. The responsive legislations center on areas of Administrative Law, Environmental Law and Criminal Law; administrative legislative bodies present the highest responsive frequencies; and the legislative bodies prefer to issue new laws or regulations rather than revising or repealing existing ones. The phenomenon has three implications. Firstly, the legislative bodies should take media information and public opinion seriously when making decisions, particularly the public participation channels of legislative agenda--setting should be institutionalized. Secondly, ad- ministrative legislation should be emphasized under a more comprehensive view of legislation quality. Thirdly, the NPC and its Standing Committee should improve its institutional capacities to be effectively responsive to the public.