提升設區的市立法質量的創新機制：立法點評

An Innovative Mechanism to Improve the Legislation Quality of Districted Cities: Legislation Comment

立法是國家的重要政治活動，設區的市制定地方性法規是地方政治的重要組成部分。創新立法工作機制是切實提高立法質量的有效途徑。2015年修改後的《立法法》雖然賦予了設區的市的人大及其常委會制定地方性法規的權力，但這種立法權並非是一種獨立的權力，而是“半個立法權＂。在設區的市開始制定地方性法規的初期，省級人大常委會不僅要履行“法制統一守護人＂的法律義務，確保設區的市地方性法規的合法性，還要履行“立法監護人＂的政治義務，積極促進設區的市立法質量的提高。立法點評是省級人大常委會對設區的市地方性法規的合法性和合理性進行點評的活動，在法理性質上屬於省級人大常委會和設區的市人大常委會之間的業務指導和工作聯系，是“立法監護＂的具體表現形態之一。廣東省人大常委會開展的立法點評活動，是促進設區的市立法質量提高的一項制度創新，從六次立法點評會的成效來看，這一制度已經成為促進設區的市地方性法規立法質量提高的重要途徑。為進一步完善立法點評制度，充分發揮其功能，可以考慮在點評會人員組成、點評方式方法、程序銜接等方面對其進行改進。

Legislation is an important political activity of the state and the local legislation of districted cities are an important part of local politics. Innovating the working mechanism of legislation is an effective way to improve the legislation quality. Although the amended Legislation Law of PRC (2015) has endowed districted cities with legislative power to make local regulations, it is not independent power but only 'semi-legislative power'. At the initial stage of exercising legislative power by districted cities, the provincial people's congresses and their standing committees should not only fulfill the legal obligation of 'the keeper of legal unification' to ensure the legality of local regulation made by cities, but also perform the political obligation of 'the guardian of legislation' to promote the legislation quality. An example of 'guardian of legislation' is legislation comment, which is a kind of conference organized by the standing committee of the provincial people's congress to comment on the legality and rationality of local regulations made by districted cities. It is a guidance of the provincial people's congress for the people's congress of districted cities, and a working connection between them. The legislation comment organized by the standing committee of Guangdong people's congress is an innovative mechanism to improve the quality of local regulations made by districted cities. In the view of the results of six legislation comment conferences, it has become an important approach to improve the local legislation quality. To further improve this system and fully exert its function, the following aspects of legislation comment need to be improved: the personnel composition of the conference, ways and means of the comment, and the procedural connection.