摘要： 立法隐性程序是一种与立法显性程序相对并与后者形成功能替代关系的立法程序类型,在现实中主要体现为转化性替代、前置性替代和应用性替代三种实践样态,通常具有正式可见性、关系相对性、依附性、理性选择性等属性。立法隐性程序之所以产生,其原因在于民主理念与科层制原理之间存在潜在的抵牾,它是立法机关为了应对制度基因冲突、工作负荷过大等国家治理难题所采取的一种策略性选择。立法隐性程序尽管有助于缓解立法机关的工作压力,但在现实运行中也容易产生激励、角色、锁定等方面的实践困境,故而需要采取一种相对温和的“制度微调”思路加以解决。这可以通过构建组织引导制度、自行修改公开制度、专属解释事项制度这三种新制度来加以实现,力图在不大幅改变现有制度安排的基础上形成合理有效的制度调整。

关键词: 立法隐性程序, 立法规划, 备案审查, 司法解释, 制度调整

Abstract: The so called ‘implicit legislative procedure’ is a unique legislative procedure which can be seen as the functional substitution of ‘explicit legislative procedure’.In practice, there are three kinds of implicit legislative procedure, i.e.the transformative substitution, prepositive substitution and applied substitution, whose property consist of the formality, relativity, subordination and so on.The cause of implicit legislative procedure lies in the principle contradiction between democracy and bureaucracy, that is, implicit legislative procedure is the outcome of strategic conduct of legislature which is to solve the trouble of institutional gene and workload.Although implicit legislative procedure reduces the working pressure of legislature, it also creates some plight in institution promoting, power distribution, constitutional role and path dependence.Accordingly, it is necessary to take some modest steps to solve the problem mentioned above, such as establish the institution of organizational guidance, amending disclosure, and legislative interpretation matters reservation.

Key words: Implicit Legislative Procedure, Legislative Planning, Recording and Reviewing, Judicial Interpretation, System Adjustment