程序民主是高质量立法的应循之路——兼论设计地方立法质量标准体系之不可行  

Procedural Democracy as the Way to High-Quality Legislation:On the Unfeasibility of Designing a System of Quality Standards for Local Legislation

作　　者：刘松山 Liu Songshan

机构地区：[1]山东大学法学院(威海) [2]山东大学国家治理研究院

出　　处：《地方立法研究》2025年第2期1-20,共20页Local Legislation Journal

基　　金：国家社会科学基金重点项目“以人民代表大会制度为重要制度载体实现全过程人民民主研究”(23AZD041)的阶段性成果。

摘　　要：用“良法”对立法质量提出要求,是必要的,但评价立法时,要避免使用“恶法”一词,因为我国立法活动的性质、立法体制和立法程序以及由此产生的立法结果,与西方所谓“恶法”的语境背景都有根本不同。对立法质量提出要求,不能仅针对地方,因为高质量的立法不仅包括地方立法,更包括国家立法,而提高国家立法质量又是提高地方立法质量的重要前提。为立法质量设计各类衡量标准,具有一定的合理性和必要性,但又分别存在挂一漏万的局限。立法活动本质上是立法机关组成人员的精神活动,相应地,法也是一种精神产品,因而难以用客观而具体的标准来衡量。提高立法质量的应循之路,不是为立法质量设立标准,而是健全立法程序,并确保程序得到严格的遵守和执行。立法程序中的全过程人民民主,是通往高质量立法的必由之路。立法学研究的宗旨是提高立法质量,而研究的主要内容应当是立法程序,因而立法学应当被称为立法程序学。党的二十届三中全会决定中有关健全人大议事规则和听证、论证等制度的相关表述,是健全人大及其常委会立法程序的重要依据和要求。It is necessary to use“good law”to set requirements for the quality of legislation,but when evaluating legislation,it is necessary to avoid the term“draconian law”,because the nature of China's legislative activities,the legislative system,the legislative process,and the resulting legislative results are fundamentally different from the context and background of the so-called“draconian law”in the West.The requirements for the quality of legislation cannot be limited to local laws,because high-quality legislation includes not only local legislation,but also national legislation,and improving the quality of national legislation is an important prerequisite for improving the quality of local legislation.The design of various measurement standards for the quality of legislation has a certain degree of rationality and necessity,but there are also traps of missing other important factors.Legislative activities are essentially the spiritual activities of the members of the legislature,and correspondingly,the law is also a spiritual product,so it is difficult to measure it by objective and specific criteria.The way to improve the quality of legislation is not to set standards for the quality of legislation,but to improve the legislative procedures and ensure that the procedures are strictly observed and enforced.Adopting the whole-process people's democracy in the legislative process is the only way to high-quality legislation.The purpose of legislative research is to improve the quality of legislation,and the main content of research should be legislative procedures,so the legislative science should be called legislative procedure.The relevant expressions in the decision of the Third Plenary Session of the 20th CPC Central Committee on improving the rules of procedure of the people's congress and the system of hearings and argumentation are an important basis and requirement for improving the legislative procedures of the people's congress and its standing committee.

关 键 词：高质量立法 良法 恶法 国家立法质量 地方立法质量 标准体系 程序民主 

分 类 号：D92[政治法律—法学]