提升设区的市立法质量的创新机制:立法点评

An Innovative Mechanism to Improve the Legislation Quality of Districted Cities:Legislation Comment

立法是国家的重要政治活动,设区的市制定地方性法规是地方政治的重要组成部分。创新立法工作机制是切实提高立法质量的有效途径。2015年修改后的《立法法》虽然赋予了设区的市的人大及其常委会制定地方性法规的权力,但这种立法权并非是一种独立的权力,而是"半个立法权"。在设区的市开始制定地方性法规的初期,省级人大常委会不仅要履行"法制统一守护人"的法律义务,确保设区的市地方性法规的合法性,还要履行"立法监护人"的政治义务,积极促进设区的市立法质量的提高。立法点评是省级人大常委会对设区的市地方性法规的合法性和合理性进行点评的活动,在法理性质上属于省级人大常委会和设区的市人大常委会之间的业务指导和工作联系,是"立法监护"的具体表现形态之一。广东省人大常委会开展的立法点评活动,是促进设区的市立法质量提高的一项制度创新,从六次立法点评会的成效来看,这一制度已经成为促进设区的市地方性法规立法质量提高的重要途径。为进一步完善立法点评制度,充分发挥其功能,可以考虑在点评会人员组成、点评方式方法、程序衔接等方面对其进行改进。

Legislation is an important political activity of the state and the local legislation of districted cities are an important part of local politics.Innovating the working mechanism of legislation is an effective way to improve the legislation quality.Although the amended Legislation Law of PRC(2015) has endowed districted cities with legislative power to make local regulations,it is not independent power but only 'semi-legislative power'.At the initial stage of exercising legislative power by districted cities,the provincial people's congresses and their standing committees should not only fulfill the legal obligation of 'the keeper of legal unification' to ensure the legality of local regulation made by cities,but also perform the political obligation of ' the guardian of legislation' to promote the legislation quality.An example of 'guardian of legislation' is legislation comment,which is a kind of conference organized by the standing committee of the provincial people's congress to comment on the legality and rationality of local regulations made by districted cities.It is a guidance of the provincial people's congress for the people's congress of districted cities,and a working connection between them.The legislation comment organized by the standing committee of Guangdong people's congress is an innovative mechanism to improve the quality of local regulations made by districted cities.In the view of the results of six legislation comment conferences,it has become an important approach to improve the local legislation quality.To further improve this system and fully exert its function,the following aspects of legislation comment need to be improved;the personnel composition of the conference,ways and means of the comment,and the procedural connection.