地方人大立法协商:概念厘定、实践难题与发展进路

Legislative Consultation of Local People’s Congresses:Concept Definition,Practical Difficulties and the Development Path

地方人大立法协商是协商民主理论与人民代表大会制度相勾连的落脚点,亦是推动地方立法民主化、科学化的重要途径。但关于地方人大立法协商的概念界定却长期存在两种不同观点,易使研究者混淆或陷入困惑。文章通过对政策表述衍变、人民主权法理、协商程序要求等内容的体系阐释,对地方人大立法协商作出更精当的界定;以概念界定为基础,从规范、主体、程序、结果四个层面详尽考察地方人大立法协商制度的运行状况,并揭示该制度存在的实践难题。文章认为,囿于该制度存在碎片化、非规范化发展之不足,应当从规范上明确立法协商的制度定位,构建以党的领导为前提、人大主导为原则、协商民主为核心、程序法治为主导、结果反馈为特色的地方人大立法协商制度,这是促进立法协商有序、健康发展的理性进路。

The legislative consultation of the local people’s congresses is the foothold of the connection between the consultative democracy theory and the system of people’s congresses, and it is also an important way to make local legislation more democratic and scientific. However, there have been two different views on the definition of legislative consultation for a long time, confusing researchers. The paper interprets the evolution of policy expression, the juris prudence of people’s sovereignty and the requirements of consultation procedures, giving a more refined definition of legislative consultation. Based on the definition of the concept, the operation status of the legislative consultation system is investigated from four aspects: norm, organization, procedure and result, and the paper puts forward the existing problems of the system. Since the system is fragmented and non-standardized, it is necessary to clarify the positioning of the legislative consultation system from the normative point of view, and build a local people’s congress legislative consultation system with the leadership of the Party as the premise, with the leadership of the Party as the premise, the principle of people’s congresses as the dominant force, consultative democracy at the core, the rule of law as the dominant force, and results feedback as a feature, which is a rational way to promote the orderly and healthy development of the legislative consultation.