论地方自主性立法中的立法事实查明与论证

On the Identification and Demonstration of Legislative Facts in the Process of Local Autonomous Legislation

根据权威机构的法律释义可知,自主性立法是一种对不涉及需要由中央统一立法的事项进行立法的地方性法规类型。由此出发,自主性立法中的立法事实的查明和论证可分为两类,即对于与“不需要由中央统一立法的事务”和“城乡建设与管理、环境保护、历史文化保护”三大事项相关的“制度事实”的查明和论证以及对于与“具有地方特色的事务”和“不具有地方特色的事务”相关的“自然-社会事实”的查明和论证。其中,对于“制度事实”的查明和论证要求地方立法机关高度关注中央文件、正式立法、法律询问答复、立法草案、立法规划等官方资料,对于“自然-社会事实”的查明和论证要求地方立法机关在充分理解自主性立法中的“地方特色”基础上,对于自然事实、民间规范类事实和意见反馈类事实进行有效搜集、鉴别和认定。在立法精细化和科学立法的意义上,自主性立法质量的有效提升在很大程度上依赖在立法的全过程中实现对于立法事实信息的持续获取和不断更新,充分吸收和运用人工智能、大数据的技术优势来减少搜集、分析事实信息方面的工作成本,并不断激发和挖掘现有立法参与形式的运行潜力。

According to the legislative comments of NPC Legal Standing Committee,autonomous legislation essentially is a type of local laws and regulations which does not involve the matters that the National People's Congress need to stipulate by legislation and having or having not local characteristics is not the necessary part of autonomous legislation.Based on this clarification,the identification and demonstration of legislative facts in the process of local autonomous legislation can be divided into two parts:the identification and demonstration of institutional fact about the matters which the National People's Congress need not to stipulate by legislation and the matters of“urban-rural construction and management,environmental protection and historical and cultural protection”which the city with districts has the legislative competence to stipulate by legislation;the identification and demonstration of natural and social fact about the affairs with or without local characteristics.Further speaking,the local legislature should pay high attention to some official data such as central files,formal legislation,reply to inquiries about laws,legislation draft,legislation plan and so on in the process of the identification and demonstration of institutional fact and pay high attention to some facts about objective law,causal relationship,social norms,information feedback and so on in the process of the identification and demonstration of natural and social fact.In the end,in order to improve the quality of autonomous legislation,the local legislature should take some necessary steps to obtain legislative facts information with high quality in the whole process of local legislation,reduce the cost of searching and processing legislative facts information by artificial intelligence and big data and exploit the potentialities of existing channels of legislative participation.