改革政策與立法引領間的博奕──中國大陸立法法修正之檢視

The Game Between Reform Policies and Legislation: Examining the Legislation Law Amendment of the People's Republic of China

中國大陸已經跳脫無法可依的時代，恰恰頻繁的立法或修法工作，這個基本著眼點在於把中國大陸改造為現代化國家，立法的活動也像經濟的發展一般，強調於法律案的立法數量之上。在改革初期那種宜粗不宜細的立法思維，雖造就法制體系的快速建構，但也完成階段性的目標。面臨改革更艱難的挑戰，國際環境的深度融入，內部各方權利訴求的拉鋸下，對於以一個精緻且扣緊需求的立法品質，中央與地方立法界限有待釐清，立法程序與專業化的確認，賦予更多來自由下而上的民間立法參與，以及社會快速發展下法律滯後現狀的高度立法（修法）立法訴求等，都是這次立法法修正的改變。改革年代中，政策成為引領與推動立法的角色，這種經驗立法理念的思維長期影響著中國大陸的立法模式，使得法律所確認的改革成果是經實踐檢驗成功的改革政策，所以立法在客觀上表現的就是對於改革決策的被動迎合。修正後的立法法，必須代之以立法帶動改革的模式中，其程序的正當性與妥適性，和立法質量和內容必須貼近時代需要為依歸的基本立場才是正途。

The Mainland China has past the era of no laws. The frequent legislation and amendments were to transform the Mainland China to a modern country. Its legislative activities, like its economic developments, focus on the volume. The legislation principal – better focus on broad outline than details – during the early reforms has completed its scheduled milestone of quickly establishing the legal structure. Faced with more difficult reforms, and more interactions with international environments, the current revision of the Legislation Law should clarify the boundaries between the central and local government, confirm the professional legislation process, work on a bottom-up method, solve the delayed legislation problems, to achieve a delicate quality satisfying the needs. During the early reforms, policies are legislature's guides. The idea of using experience for legislation long affect the legislative model in Mainland China, which means the reformations confirmed by law was actually the successfully experimented reform policies. The legislation was passively reflecting the reform policies. After the Legislation Law Amendments, it should be a new model where legislation leads reforms. The legitimacy and the appropriateness of the process, and the quality and contents of the legislation, should answer and closely fit needs of the society.