制度化與法治化：公眾立法參與的必然躍遷──以十份立法參與制度文本為基礎

Institutionalization and Legalization: the Essential Improvement of Public Participation in Legislation-Based on Ten Normative Documents of the Citizens' Participation in Legislation

著眼於以積極立法加強管治，提高立法動員能力、克服法規實施阻力、追求地方立法特色，地方立法中的公眾參與實踐探索發揮了一定作用。公眾立法參與的機制化、制度化得以開啟、鞏固和發展。這表明我國公眾立法參與己處於由制度化向法治化的發展階段，而另一方面，這一質效提升的躍遷過程不是自發的，而是能動的、實踐著的。由此，認真檢視和提取既有立法參與制度文本中的積極成分和規律性的內容，合理評析和把握各地方的立法參與制度文本在規範設計及其應用中的實效與缺憾，在立法法以及地方立法條例的雙重護佑與雙層容納之下，應當確立各類公眾參與主體的參與權利及立法職權主體和行為主體的對應義務與責任。在制度基點上，明確規定公民享有包括立法知情權、表達權、監督權等在內的系統性和精細化的立法參與權利，並加強其組織性和有序性；在程序規則上，應對立法參與的主體、方式、程序以及對應的立法職權主體與行為主體的職責義務、問責機制等予以通行規則的剛性規定。

Recently, some local citizens actively explore to carry out the public participation in legislation, the legislative quality, mobilization, legislation local-characteristic, has had a beneficial to good effect. Meanwhile, the institutionalization and institutionalization of legislative participation have been consolidated and developed. This suggests that the public participation of legislation in China has been and will continue to be developed from institutionalization to legalization. However, the quality and effectiveness of the public participation of legislation is not voluntary, but dynamic and practical. Thus, it is necessary to carefully analyze and extract the active ingredients and the reasonable contents in the existing ten texts about legislative participation, evaluate and grasp around in the regulation of public participation in legislation and application of the results and defects. It is no doubt that the participants' right, and the process, obligation, and responsibility of relative legislative body will be clarified under double protection or capacity of state legislation law and local legislation regulations. Furthermore, it should be stipulated in law that the citizens have sufficient right to know, to express, and to supervise. The last but not the least, it should be stipulated that the main participants, way and procedure of legislative participation, the responsibilities of the legislative body and the subject of action and the responsibility for accountability.