從群眾路線到有限多元：中國大陸立法聽證制度之發展

建立聽證制度已成人大重點工作之一，至2004年，共有24個省級人大常委會舉行了38次的立法聽證會，17個省市人大常委會制定了立法聽證規則。2000年7月1日施行的《立法法》，使得人大的聽證制度正式走向中央。聽證制度對中國大陸立法透明度的提高，具有正面的助益，配合公民討論及旁聽制度的推行，法律的公開性及合法性可望有所提升。地方人大舉行的聽證會中，法案為群眾普遍關心的事項，譬如有關城市建設管理和市場秩序，以及經濟管理、社會保障、環境保護等法案，攸關城市居民切身利害，成為聽證的主要對象，具爭議性的法案也容易吸引民眾參與。中國大陸立法過程中引進聽證制度實施未久，許多制度仍然在摸索當中，各地對聽證的時機和議題規定都不同，有的地方規定在法案起草過程中班行聽證，也有規定在審議階段，甚至有規定立法規劃時進行。對聽證的議題，有的地方有規定，有的地方則未規定，對於有權力舉行聽證機關規定亦有不同。對於立法意見彙集的制度創新，是中國大陸人大制度化和專業化的一部分，反映了「後極權式威權型國家」政治逐步出現「有限多元」的現象。

關鍵字

立法聽證；立法過程；意見彙集；群眾路線；人大制度；政治改革

並列摘要

Among the endeavors undertaken by China's fourth generation of leadership to reform its aging political system, legislative hearing is an important part. Since its introduction in late 1990's, thirty-eight hearings have been held by twenty-four provincial people's congress. Seventeen local people's congress at the provincial and city levels have enacted rules so that the practice can be carried out in a more institutionalized manner. The passage of the Legislation Law in July, 2000, brings the reform to the national legislature. Legislative hearing system could help increase the transparency of China's legislative process. Coupling with public discussions and opening up of the legislative floor to public observation, the legitimacy of law-making process will be enhanced. Issues with wide public interest or great controversy, such as management of the urban areas and the market and social and environmental protection, have been the main subjects for hearings held by local people's congress. Legislative hearing system have only been brought into Chinese polities lately, As such it is still in a stage of experiment. Different local people's congresses have made different rules and some do not even provide written regulations. Further refinement and institutionalization are needed. Nevertheless, the new reform is part of the package that China's people's congress has undergone on its way towards bringing more institutionalization and professionalization into the heretofore marginalized political organ.