摘要
法学界对立法提案的研究未能揭示立法提案的真实功能。人们常常认为立法提案的功能是启动立法程序,但这种观点带来了概念和机制上的困境。立法提案是一个法律概念,而立法程序的启动是一个描述性概念,“起草”和“提案”上发生了分离,使得立法提案可能造成法律规则的位阶改变。通过对立法提案的主体和文本进行实证研究,发现全国人大常委会委员长会议的“提案效果”大于国务院,而国务院的“提案效果”大于专门委员会。同时,更加重要的法律草案由更加重要的主体来提出,而更重要的提案主体提出的法律草案的审议时间更长,表明立法提案的实质功能并不仅仅是启动立法程序。立法提案能够保障效率,但非必要,立法提案应当保障民主且有可能,则应当优先保障民主,并对“立法之外”的过程与因素予以着重关注。立法提案还发挥着立法议程设置、政策的制度转化、连接法律与社会的功能。因此得出结论,立法提案并非只能启动立法程序。
The legal community's research on legislative proposals has failed to reveal the true function of legislative proposals.People often believe that the function of legislative proposals is to start the legislative process,but this view brings about conceptual and mechanistic dilemmas.Legislative proposals are a legal concept,while the initiation of legislative procedures is a descriptive concept,which has caused the existing views to separate“drafting”and“proposal”,which may lead to a change in the hierarchy of legal rules.Through empirical research on the subjects and texts of legislative proposals,it is found that the“proposal effect”of the Chairman's Meeting of the Standing Committee of the National People's Congress is greater than that of the State Council,while the“proposal effect”of the State Council is greater than that of the special committees.At the same time,more important draft laws are proposed by more important subjects,and the deliberation time of draft laws proposed by more important proposal subjects is longer,indicating that the substantive function of legislative proposals is not just to start the legislative process.Legislative proposals can guarantee efficiency,but it is not necessary.Legislative proposals should guarantee democracy and it is possible,and democracy should be prioritized,indicating that they focus on the process and factors“outside of legislation”.Therefore,legislative proposals also play the role of setting the legislative agenda,institutional transformation of policies,and connecting law and society.Hence the conclusion,legislative proposals are not only used to initiate legislative procedures.
作者
王起超
WANG Qi-chao(Law School,Shenzhen University,Shenzhen 518060,China)
出处
《河北法学》
CSSCI
北大核心
2024年第12期130-151,共22页
Hebei Law Science
基金
国家社会科学基金青年项目“立法条件成熟判断模式的类型化研究”(23CFX080)的阶段性成果
关键词
立法提案
法律草案
立法程序
议程设置
决策转换
legislative proposals
draft laws
legislative procedures
agenda-setting
decision-making conversion
