地方立法权扩容的'张弛有度'——寻找中央与地方立法权的黄金分割点

摘要

长久以来人们习惯于将地方立法权归于主权不可分割的组成部分,而忽略了其作为自治权之属性,使得人们更多地将地方立法权置于国家立法权的从属地位,忧心于地方立法权对国家法制统一性的破坏.在新修订的《立法法》《宪法》授予设区的市立法权的形势下,地方立法权性质界定不清,依然是束缚地方立法权实施的关键.从横向分权的角度看,立法权虽在终极意义上具有主权的特性,但它又异于主权和人民主权,具有操作意义上的自治权性质;从纵向权力配置的层面看,地方立法权又不同于制宪权和国家立法权,具有实践层面的地方自治权属性.基于地方立法权自治权的定位,在强调立法权和制宪权分离的前提下,从保护人权、保障民主法治的理念出发,设定中央和地方立法权的专属范围.立法权在中央和地方的配置界限不明等因素,极易造成地方立法权的滥用和异化,在地方立法权下放的同时强化对其本身的规制,达至在维护法制统一和推进法治建设之间实现中央与地方权力配置上的"张弛有度"和收放自如的动态平衡.%People are accustomed to the viewpoint that local legislative power is an integral part of sover-eignty, ignoring its attribute of autonomy. As a result, people tend to subordinate it to national legislative pow-er, worrying about the destruction it makes on the unity of national legal system. The newly revised legislative law and the constitution give a great opportunity to the legislative power of district but the unclear definition of the nature of local legislative power remains as the major constraint on local legislation. From the angle of hori-zontal division of power, legislative power is sovereign in the ultimate meaning, but it is different from the sov-ereignty and the sovereignty of the people, because it takes on the autonomy feature in practice. From the ver-tical angle in power disposition, local legislative power differs from the constitutional power and the legislative power of state, because it embodies local autonomy in practice. Based on the orientation of the autonomy of state and local legislative power and the emphasis on the separation between legislative and constitutional pow-ers, exclusive range of national and local legislative powers should be set according to the principle of human rights protection and guarantee of democracy and the rule of law. Some negative factors as the unclear bounda-ries of legislative power between the central and the local can easily lead to abuse and alienation of local legis-lative power. Therefore, it is necessary to transfer the power to the local with a reinforcement on its own regula-tion, to safeguard the unity of legal system and to promote the rule of law between the central and the local power configuration in order to achieve a dynamic equilibrium of well-balanced tension and relaxation with flexibility.