中共黨國體制下立法機關的制度化

Abstract

本文借用西方立法學界有關制度化的概念，自持續性、周界、及內部複雜化等三個面向，分析中共全國人大制度化的狀況。毛澤東時期全國人大及其常委會的持續性很低，集會時間短，開會時間不固定，代表產生的方式任意性強，流動性高，任期也不拘。八○年代以來，不論在任期、集會或是代表的產生方面，全國人大都已漸趨穩定，持續性已大為提高。以周界的完整性而言，全國人大及其常委會和全國人大領導交叉任職的情況逐漸消失。然而，全國人大常委會領導階層及委員的連任比，並無明顯改善，表示人大周界的完整性仍有待加強。全國人大內部複雜化的趨勢十分顯著，八○年代以來，委員會的數量每年有增加，全國人大常委會所起草的法案，大抵皆由委員會帶頭，而惡證制度的建立，是全國人大立法工作的一大進步。全國人大的工作機構地位亦以強化，是內部組織日趨複雜的另一證明。\r\nThis article uses the concept of legislative institutionlization to analyze the durability, boundares, and internal complexity of the National People`s Congress. Under Mao Zedon`s rein, the NPC was low in durability. The legislature met irregularly and neither the selection of the deputies nor the terms of the deputies were institutionalized. Since the 1980s, the durability of the NPC has greatly improved. Since the 7th NPC, the overlapping of personnel between the NPCSC leadership and the CCP`s Central Political-Legal Commission has been disconnected. Nevertheless, the high turnover rate of the NPCSC leadership and its members suggests that the legislature is still not well bounded. However, the trend towards professionalism is beyond doubt. Since the 1980s the legislative committees have gained strength both in size and in power. Most of the laws passed by the NPCSC are being drafted by the committees. The introduction of the hearing system is a significant step towards increasing the quality of legislation. Addition staff members and reinvigoration of subsidiary organizations are also indications of heightened internal complexity.