香港特別行政區立法會提案權研究──從提案權的行使看香港行政與立法的關係

A Study on the Right of Proposing a Bill of Hong Kong Legislative Council-On the Relationship Between Administration and Legislation

在《中華人民共和國香港特別行政區基本法》框架下，“立法會有票無權，政府有權無票＂。這裡的“無權＂主要是指立法會沒有提案權。《基本法》第74條規定立法會議員不得提出涉及公共開支、政治體制、政府運作或政府政策的法案。同時，《立法會議事規則》第57條又對議員提出修正案的權力做出限制。儘管有此雙重限制，立法會仍然發展出較為成熟且獨立不受干擾的內部運作程序，從而去行使它的基本法權力。同時，立法會提案權的憲制性衰退亦迫使香港立法會將工作重心轉移至對政府的監督，如質詢、動議辯論、委員會調查等。在一定程度上，立法機關的有效監督能夠彌補議會在立法功能方面的衰退。

Under the framework of the Basic Law, the popularity and legitimacy of directly elected Members are generally considered to have caused the phenomenon that 'the LegCo has votes but no power and the Government has power but no votes'. The 'no power' here mainly means that the LegCo has no right of proposing a bill. Article 7 4 of the Basic Law stipulates that Members of the LegCo shall not submit bills relating to public expenditure, political system, government operation or government policy. At the same time, section 57 of the Rules of Procedure of the LegCo also limits the powers of Members to propose amendments. Despite this double restriction, LegCo has developed a more mature and independent, undisturbed internal operation procedure to exercise its basic legal powers. At the same time, the constitutional recession of the legislative power has also forced the LegCo to shift its focus to oversight the Government, such as questioning, debating and committee investigation. To a certain extent, the effective supervision of the legislature can make up for the parliamentary recession in the legislative function.