人大工作機構起草法案析論

A Comment on the Drafting Bill by the People’s Congress Work Organization

2015年《立法法》修訂確立了“人大主導立法”的原則與制度，這必然要求加強人大工作機構起草法案的力度。從現有人大工作機構的設置來看，除人大事業編制機構以及黨群機構以外，人大專門委員會以及人大常委會的一些工作機構也可以作為法案起草主體。但是人大工作機構所起草的法案也是有一定範圍的，應該是“綜合性、全域性、基礎性”的重要法案才由人大工作機構來起草或組織起草。實踐中人大工作機構起草或組織起草法案面臨一定的困境，譬如機構設置不完善、職責界定不明晰、立法能力差等。為此，需要進一步完善人大工作制度設計、完備人大工作機構設置、界定人大工作機構的職權、提高人大工作機構的立法能力等，以最終實現我國人大主導立法的目標。

The enactment of the Legislative Law of 2015 establishes the principles and systems of the“leading legislation of the People’s Congress”, and it is imperative to strengthen the efforts of the People’s Congress to draft the bill. So which working institutions can draft a bill or organize the drafting of a bill? From the setting up of existing people’s congress work organization, in addition to the People’s Congress business institutions and party organizations, the People’s Congress specialized committee and some working organization of the PC Standing Committee can served as the drafting body of the bill. However, the drafting body of the work of the People’s Congress has also a certain scope, only the important bill which is “comprehensive, overall, basic”can be drafted by the People’s Congress work organization. But the People’s Congress work organization drafting or organizing the drafting of a bill in the practice face a certain degree of difficulties such as imperfection in the institutional setting-up, lack of clarity of responsibilities, poor legislative capacity, We should improve the system design of the People’s Congress, complete the work organization of the People’s Congress, give a clear definition of the power limit of People’s Congress work organization, improve the legislative capacity of the People’s Congress work organization and soon, all these it that gradually realize the goal of the leading legislation of the People’s Congress.