立法评估完整性研究及建设路径

摘要

The rich experience in legislative evaluation not only witnesses the development of this area,but it also reflects many problems.The custom in institution,theory and practice regard the ex post legislative evaluation much more important than ex ante legislative evaluation,which has severe devastating the integrality of legislative evaluation system.Exaggerating the function of ex post evaluation and ignoring the value of ex ante evaluation has mixed aims of legislative evaluation and reduce its effectiveness.The fragmentary content in evaluation system means lacking of horizontal integrality.Legislative evaluation is interrelated with quality of legislation.Therefore,problems in legislation can be the evidence of shortcomings in legislative evaluation.Theoretically,legislative evaluation should be launched consecutively according to the relative law/regulation,only if in enforcement.However,none legislative evaluation program in China has traced the quality of a law continuously,which destroys the vertical integrality of legislative evaluation system based on time series.Consequently,it is difficult to reflect the change of law quality.In consideration of deficiency both in horizontal and vertical integrality,this paper commend to establish the integrality of legislative evaluation system via institutional,theoretical,practical paths and realize the normalized startup in future.%国家对立法质量的重视、地方对立法评估的认可以及学术研究积累的成果共同见证了立法评估发展的历程，也反映出立法评估领域存在的问题：轻前评估重后评估的惯例影响了评估完整性的形成，导致评估目的的错位，严重影响评估结论的有效性。评估类型的不完整造成立法评估横向型完整性的缺失。立法评估作为一个整体应在固定期限内连续对实施中的法律进行评估，但我国尚无一项立法评估项目持续追踪一部法律质量，从时间纵轴上破坏了评估体系的完整性，难以反映法律质量的动态变化。由于完整性意识的不足，多数学者对国外经验的引介也人为选择后评估研究成果。鉴于立法评估横向、纵向完整性以及国外经验的引入存在偏颇，文章提出从意识、制度、对前评估缺失的弥合及立法评估启动的常态化四条路径建设完整的立法评估。