法案公开征求意见的法理分析及方式选择

The Legal Analysis and Way Selection of Soliciting Public Opinions on a Bill

法案公开征求意见制度,也称为法案的公众咨询制度、公众评议制度,是法案起草或审议机关对其所起草或审议的法案向社会公布,广泛征求社会公众意见的制度。实施法案公开征求意见制度可以帮助立法机关获取更多的信息,使得立法更具有"合法性"与"可接受性",能够让不同的利益在立法中得以协调。现代社会立法注重立法的民主化、科学化,多采用不同的方式征求社会公众意见。法案公开征求意见方式的选择在某种程度上决定了法案公开征求意见制度的实施效果。国外如美国、加拿大、英国都实施法案公开征求意见或公众咨询制度,通常也注重法案公开征求意见方式的选择,同时注重多元化的法案公开征求意见方式的结合,以实现更好的效果。我国最早在1954年的宪法制定过程中就采用了公开征求意见的制度,但真正广泛地采用与实施是在我国2000年制定《立法法》之后。实践中,法案公开征求意见的方式存在不足:一是方式种类少,常用的五种方式是开展调查研究、召开座谈会、书面征求意见、邀请专家咨询或论证、立法听证会;二是没有注重不同方式的选择问题,就是没有考虑法案的性质、法案的专业性等作出合理的公开征求意见方式的选择,该制度的实施效果并不是很好。我国应借鉴国外的成功经验,应进一步完善征求意见方式的设计,注意运用现代科学技术,同时,尽可能采用多元化的方式来改进我国法案公开征求意见制度的实施效果。

The system of soliciting public opinion, also known as the public consultation system or public comment system for a bill, is one for Legislature and Reviewing organization of a bill to solicit public opinion when drafting or deliberating a bill. The implementation of the solicitation system can help the legislature to obtain more information, make legislation more ＂legitimacy＂ and ＂acceptability＂ and coordinate different interests in the legislation. Modern social legislation emphasizes the democratization and scientificity of legislation and seeks to use more different ways to solicit the public opinions. The way of soliciting the public opinions on a bill determines the effect of the system to some extent. Foreign countries such as the United States, Canada, the United Kingdom have implemented the system of opening to the public opinion or public consultation system, and paid attention to the choice of the way soliciting public opinion while focusing on a wide range of ways of soliciting public comments on a bill for the purpose of achieving better results. The first time for China to adopt the public consultation system was the year of 1954 in the process of constitution making, but the real wide implementation of this method in China was in 2000 after the enactment of Legislative Law. In practice, there are some defects concerning the way of soliciting public opinions on a bill：one is the way is limited. The five commonly used methods are to carry out investigation and study, hold a forum, ask for comments, invite experts＇ advice or argument, and take legislative hearings. The second defect is to pay no attention to different ways. The choice of the way of soliciting public opinions does not take into account the nature of the bill, the professionalism of the bill, etc. and the choice is not so reasonable, so, the effect of implementation of the system is not very satisfactory. China should learn from the successful experience of foreign countries, further improve the design of the soliciting ways, pay attention to the use of modern science and technology, and use diversified ways as far as possible to improve the effect of the System of Soliciting Public Opinion in China.