地方重大行政决策程序立法之规范分析——兼论中央立法与地方立法的关系

Analysis on the Local Procedure Provisions of Major Administrative Policy-making

重大行政决策程序立法采用了国务院指导性文件与地方立法先行先试相结合的推进方式。地方重大行政决策程序规定包括政府规章与行政规范性文件两种形式,广泛分布在除西藏外的全国30个省、直辖市、自治区。地方立法历经十余年探索,逐步完善了公众参与、专家论证、风险评估、合法性审查、集体讨论决定五项程序制度,为中央立法积累了较为成熟的立法经验。国务院现已启动《重大行政决策程序暂行条例》的立法工作,条例作为规范重大行政决策的基本法应当吸收地方共性规定与成熟制度,完善公众参与等外部机制,适度规范行政机关之间的内部关系;条例作为中央层面立法,构建程序制度应当使之具有可操作性,避免条例出台后地方仍需大量重复立法细化规则。

Procedure legislation of major administrative policy-making is co-promoted by the guidance document of the State Council and local legislation. Local procedure provisions of major administrative policy-making include two forms： local rules and normative documents, which are distributed widely in thirty provinces except Tibet Autonomous Region. During the past ten years, procedure systems of major administrative policy-making were gradually completed by the local legislations. The local legislations have accumulated experience for the legislation on central level. The State Council has finished the draft of the Interim Regulation of Major Administrative Policymaking. As the basic law of major policy-making procedure, the regulation should absorb local legislation experience to perfect the public participation system and moderately provide the inner relationship among the agencies concerning major administrative policy-making. As the central level legislation, the regulation also should be specific so as to avoid repeatedly promulgating detailed rules on local level.