地方性法规立项论证若干问题研究

Research on Issues of the Argumentation of Local Legislative Project

立项论证,是指立法机关就法规建议项目的必要性、可行性等问题进行研究、分析的活动,它对科学配置立法资源、提高地方立法效率具有重要意义。立法机关应当为立项论证工作付出适当的成本,推动论证工作从形式性向实质性转变。立项论证的标准包括:(1)形式标准,要求具备规范的法规草案文本、相关说明和参考资料、调研论证情况报告、起草工作计划等;(2)必要性标准,主要分析立法项目与地方经济社会工作大局、人民群众的切身利益、当前社会的主要矛盾和突出问题的关联度;(3)可行性标准,主要分析立法项目调研是否充分、是否具备国内外同类立法经验、体制性矛盾是否已经协调解决、立法时机是否成熟、主要制度是否可行、与国家的立法是否存在衔接或者协调上的障碍、立法的正负效益等;(4)不可立项的标准,主要分析立法项目是否超越地方立法的权限、与上位法是否相抵触、有关方面对立法必要性和可行性是否存在重大分歧意见、是否属于不需要通过立法来解决的事项、立法目的是否主要维护部门利益等。

The argumentation of local legislative project,which refers to the research and analysis of the legislature on the necessity and feasibility of a proposed legislative project,is of great significance to the scientific allocation of legislative resources and the improvement of the efficiency of local legislation.The legislature should pay appropriate cost for the argumentation of legislative project and promote it to transform from a formality only to a substantive work.There are some criteria for the argumentation of legislative project:(a)the formality,including the draft regulations,text instructions,reference,research and demonstration report and draft working plan;(b)the necessity,including the analysis of the correlation between legislative project and local society and economy,the people’s interests,and the major contradiction and problem in current society;(c)feasibility,which mainly analyzes whether the legislative research project is sufficient or whether they have similar domestic and foreign legislative experience,whether institutional contradictions have been resolved,the timing for legislation is mature,the main system is feasible,and there is convergence or legislative coordination obstacles,and the benefit and cost of the legislation;(d)the standard for not establishing the project,which mainly analyze whether the legislative project is beyond the scope and authority of local legislation,whether it conflict with the upper laws,or there are significant dissent,or it is not necessary for legislation,or there is a problem of department interest protectionism.