法规影响分析程序:提升立法质量的事前之道  

The Regulatory Impact Analysis:an Anticipated Way to Improve the Quality of Legislation

作　　者：何跃军 He Yuejun

机构地区：[1]浙江大学光华法学院 [2]宁波大学法学院

出　　处：《地方立法研究》2019年第5期85-105,共21页Local Legislation Journal

基　　金：浙江省软科学研究一般项目“乡村振兴的法治保障体系研究”(编号2019C35036);第62批中国博士后基金面上项目(资助编号:2017M621900)的资助

摘　　要：提升立法质量是后立法时代所有立法机关面临的共同难题。解决这一难题首先应明确立法质量的概念与构成要素。立法质量是立法产品满足法律主体需求的特性之总和,这些特性应由形式要素、程序要素与实质要素三方面共同构成。基于人民群众对立法质量迫切需求的现实,当下提升立法质量尤其应当注重实质要素。实质要素的提升应当更多考虑从事前而非事后角度入手。法规影响分析程序(RIA)便是一种从事前程序提升立法质量的重要程序安排。引入这一程序,在国内具有实现立法为民、有效制约权力和保障权利的重要意义。但检视我国立法法和地方立法中的程序规定,可以发现我国已有立法程序与RIA还有不小的差距,在实践中并不十分重视事前程序,虽有注意听取公众意见,但听取的过程、听取的结果、替代措施的考量等并未有较为成熟的程序规定。在法案草拟阶段,存在立法规划、法案提出、实际草拟等三大方面的问题。有鉴于此,为了克服引入RIA面临存在的基本理念尚未形成、具体操作经验缺乏等难题,建议从修正和设计符合我国立法现状与需求的法规影响分析程序的基本理念、基本流程、推动单位和责任机制等方面加以解决。Improving the quality of legislation is a common challenge faced by all legislative organs in the post-legislative era.To address this challenge,the first step is to clarify the concept and components of legislative quality.The quality of legislation is the sum of the characteristics of legislative products.It should meet the needs of legal subjects.These characteristics should be comprised of three elements:formal elements,procedural elements and substantive elements.Based on the reality of the people s need for the quality of legislation,the current improvement of the quality of legislation should focus on the essential elements.The promotion of substantive elements should be more proactive.The Regulatory Impact Analysis(RIA)is an important procedural pre-arrangement to improve the quality of legislation.The introduction of this procedure is important in realizing legislation purpose for the people,effectively restricting power and guaranteeing rights in China.However,by examining the domestic“Legislation Law”and the procedural provisions in local legislation,this article finds that there is still a big gap between the existing legislative procedures in China and the RIA.In practice,the legislators do not attach great importance to the prior procedures,although they may only seek the public opinions,but not accept them.In the drafting stage of legislations,there are three major problems,legislative planning,legislation submission,and actual drafting.In view of this,in order to overcome the difficulties in the process of introducing RIA in China,it is recommended that the legislators should modify and design the basic concepts,basic processes,and promotion units forthe analysis process.

关 键 词：立法质量 事前程序 法规影响分析程序 

分 类 号：D92[政治法律—法学]