地方立法主体扩容改革的立法需求悖论及其破解

The Dilemma of Legislative Demand after Local Legislature Reform for Extension and Its Solution

设区的市的立法需求既是地方立法主体扩容改革的动因,对需求的回应也是此后科学立法、民主立法的基本要求之一。但《立法法》修改后的各地实践却显示出与此改革逻辑相悖的情况,立法需求并未在制度运行中彰显出预设的规范地位,各设区的市出现找不到需求或制定出来的立法没有回应需求的现象。这一改革悖论既源于《立法法》中"立法需求"概念的内涵与外延不明,也源于作为新手的地市级立法主体尚未建立一种需求回应型的价值取向,各地正在建构的立法程序也没有形成如何搜寻、甄别并回应立法需求的规范建构。其破解路径在于剖析立法需求的概念内涵与呈现于地市级立法活动之中的外延,将其安置于过往"问题—立法—解决问题"的简单化思维之中,重新形成一种需求回应型的立法思维,并通过立法程序设计,赋予立法需求在地市级立法制度中的应然地位。

Prefecture-level legislative demand is the motive and driver of the reform to expand local legislature,and response to which is a fundamental criterion of legislating in a scientific and democratic way.However,the practice afterward differed as the local legislative demand didn’t play a normative role in the legislative institution as expected.Some districted cities found it difficult to target legislative demand,and some developed local regulations without felicitously answering legislative request.This paradox is resulted from a confusing concept,an erroneous legislating mind pattern,and a legislative procedure is to be perfected yet.To fix this problem,a discussion of the concept of legislative demand and the categorization of local demand is helpful,based on which we can discuss how to build a demand-responsive legislating mind pattern and how to improve the legislative institution.