论立法起草者的角色定位与塑造

On the Role Orientation and Shaping of Legislative Drafters

当下有关立法学的研究,由于没有很好地厘清研究对象,认清立法者的身份,导致立法学研究缺乏对实践的指导意义。事实上,立法起草者是决定立法质量的关键角色,他们将立法者的思想与意图融入法律体系,用文字描绘出法律"真善美"品质。在应然意义上,立法起草者是立法意图的传递者、经验理性的运用者、治理规则的供给者,以及社会改革的保障者。然而实践中,由于角色认知与定位、专业与技术素养,以及外部影响等因素导致了起草者角色失范,偏离了期待的行为模式,起草恶法劣法丑法,致使立法被俘获,部门化利益法制化明显。在矫正起草者角色时,在制度上要推广立法起草回避制度、探索多元起草模式、完善人大提前介入起草制度以及构建立法起草责任制,对起草者行为进行约束;在技术上遵循宏观的立法理论与微观的技术路线,提升立法质量;在人才培养上加强立法起草人才建设与储备,促使起草者更好地发挥角色功能。

At present,due to the lack of a clear understanding of the object of study and the identity of the legislator,which leads to the lack of guiding significance for the practice of legislative research.In fact,legislative drafters are the key players to determine the quality of legislation.They bring the ideas and intentions of legislators into the legal system and describe the quality of"truth,goodness and beauty"of law in words.In its proper sense,legislative drafters are the users of empirical rationality,the transmitters of legislative intentions,the suppliers of governance rules and the guarantors of social reform.However,in practice,due to the role recognition and positioning,professional and technical literacy,as well as external factors,it is easy to lead to the drafter’s role anomie,deviate from the expected behavior model,draft bad laws and ugly laws,resulting in the capture of legislation,and the departmental interests are clearly legalized.When correcting the role of drafters,in the system,we should promote the avoidance system of legislative drafting,explore multiple drafting modes,improve the system of early involvement of the National People’s Congress in drafting,and construct the responsibility system of legislative drafting,so as to restrict the drafters’behavior.Technologically,we should follow the macro-legislative theory and micro-technical line to improve the quality of legislation.In terms of personnel training,the construction and reserve of legislative drafters should be strengthened so as to enable drafters to better play their roles and functions.