从改革引擎到规范对象：地方政府规范性文件的法治化路径

地方政府规范性文件，是地方政府为实施法律、执行政策，在法定权限内制定的行政法规、规章以外的用以规范行政主体或不特定相对人的具有普遍约束力、可反复适用的决定、命令、办法、指示等。地方政府规范性文件的制定实施，有效弥补了制定法的缺陷，促进了当地经济社会发展，提升了地方政府参与社会治理的能力和水平。但同时，规范性文件制定主体的多样性、制定程序的随意性、监督机制的缺失以及制定过程中的以权谋私行为，容易侵害当地民众的合法权益，也损害了地方政府的公信力和权威。为实现地方政府规范性文件制定的法治化，应当通过明确规范性文件的制定主体、规范行政规范性文件的制定程序、保障民众参与规范性文件制定的权利、完善规范性文件的备案审查制度以及健全“问题”规范性文件的惩戒机制等措施，有效提升规范性文件的质量。

From Reform Engine to Normalizing Object:the Legalization Path of Normative Documents by Local Governments

The local governmental normative documents are the universally binding and repeatedly applicable decisions,orders, measures,instructions,etc.besides the administration laws and regulations made by local governments within statutory authorities to regulate administration subjects and unspecific relative persons for the purpose of implementing laws and enforcing policies.The making and implementation of the local government normative documents has not only effectively compensated the deficiency of the made or amended laws,but also promoted the development of the local economy and society and improved the local governmental ability to be involved in social governance.At the same time,however,the subjective diversity of the normative documents making,the optional making procedure,the shortage of monitoring mechanism and power abuse for gains in the document-making process easily infringe the legal rights of the local masses and are harmful to the governmental accountability and authority.In order to achieve legalization in mak-ing local governmental normative documents,the quality of the normative documents can by effectively improved by such measures as clarifying the making subjects of the normative documents,standardizing the making process for administrative documents,guaranteeing the masses participation in the making of the normative documents,perfecting recording and examining of the documents,completing the punishment mechanism for the documents with “problems”and so on.