中国立法效率影响因素的再审视——基于全国人大常委会立法规划的实证分析(1991—2019年)

What Influences Legislative Efficiency in China?:An Empirical Inquiry of NPCSC’s Legislative Plan(1991—2019)

在我国的立法过程中,立法效率存在较大差异,有些列入全国人大常委会立法规划的法案在数月间即可通过,而有些却无法在当届落地,甚至绵延十几年。如何理解立法效率的差异化?本文基于1991—2019年全国人大常委会立法规划内法案的落实情况,探讨党和国家的关注、审议协商以及法案特征等多元因素对立法效率的影响。我们发现,全国人大立法对党和国家的工作重点有极强的回应性,党的领导在立法工作中发挥了至关重要的作用。法案审议中的利益分化和协商会增加立法延宕的可能,多方利益的协调和共识的凝聚则会提高立法效率。立法规划对立法过程有正面指导效用。此外,法案类别、议题、成熟度和复杂度都会作用于立法效率,内外部环境的变化和立法程序的修改也同样会对立法效率产生影响。最后,在拓宽公民参与立法工作渠道的同时,还应重视对民意的实质性吸纳。

There exist significant variations in terms of the legislative efficiency of the National People’s Congress.Some bills listed in the legislative plan were enacted and promulgated into national laws within months.Some were nonetheless delayed,up to decades.What explains such divergence?Based on an empirical inquiry into the legislative plans of the NPCSC from 1991 to 2019,we examine a variety of factors,such as the party leadership,legislative deliberation,and other characteristics of the proposed bills.We find that our lawmaking tends to respond to the party leadership efficiently.Bargaining during legislative deliberation nonetheless leads to legislative delay.Legislative plans,in general,accelerate the lawmaking process.Moreover,policy types,issue areas,and the maturity and complexity of proposed laws influence legislative efficiency to various degrees.Changes in both the external and internal environment and the revisions of the legislative procedure also impact legislative efficiency.At the same time,we find that while the NPC continues to invite more public inputs in its lawmaking process,substantial improvement is still needed.