区域经济一体化的法律治理

On the Legal Management of Regional Economic Integration

我国当前区域经济一体化的法律治理机制,有区域行政协议、区域性组织、区域协作立法、区域行政规划和区域行政指导五种。在国家与社会维度上,区域经济一体化的法律治理是一个行为法问题,是国家对市场经济的宏观调控,其依据是宪法第15条,内容的合法性在于遵循区域平等原则,程序的合法性在于公众参与。其中,区域平等源自公民个人的平等权,既约束国家对不同区域公民的公权力行为,又约束不同区域政府机关间的行为;公众参与在区域治理中具有更丰富的特点,既是促进区域平等的途径,又是在行政内部机制失灵时推动制度运行的动力机制。在国家组织系统内部,区域经济一体化的法律治理是一个组织法问题。其中,区域行政指导和区域行政规划,实践了宪法和组织法上规定的领导,蕴含着领导事项、领导方式和领导区域等要素。区域经济一体化中,人大的作用应在各方支持下按照政府治理的要求予以加强,以增强区域经济一体化的民意基础。各地开发区管委会的设立并非都具合法性,其职权中不得包括行政强制措施权、冻结和拍卖权以及有关人身自由的处罚权。行政区政府机关之间的主要合作机制是区域行政协议。它是宪法上民主集中制原则的体现和对市场主体的尊重,它对缔约主体的约束力有赖于缔约各方的诚实信用。

In China,legal mechanisms for the management of regional economic integration fall into five types:regional administrative agreements,regional organizations,regional collaborative legislation,regional administrative planning and regional administrative guidance.In terms of the national and social dimension,the legal management of regional economic integration is an issue of behavioral law ;it represents the macroregulation of the market economy by the state on the basis of Article 15of the Constitution.In terms of content,its legitimacy lies in the fact that it abides by the principle of regional equality ;in terms of procedure,its legitimacy lies in public participation.Regional equality derives from the equal rights of individual citizens.It constrains both the public-power actions of the state with regard to citizens in different regions and inter-governmental behavior across different regions.Public participation has a richer variety of features in regional administration.It is both a way of promoting regional equality and a driver that keeps the system running when internal administrative mechanisms malfunction.Within the organizational system of the state,the legal management of regional economic integration is an issue of organizational law.Regional administrative guidance and planning exercise leadership as prescribed by the Constitution and organizational law ;they contain such elements as leadership issues,ways of leading and leading regions.In regional economic integration,the role of People's Congresses should be supported and reinforced in accordance with the requirements of government management,so as to strengthen popular support for regional economic integration.Not all the development area management committees in different regions are legitimate ;their powers do not include administrative coercion measures,freezing,holding auctions,or punishments impinging on personal freedom.The main mechanism for cooperation between the governmental organs of administrative regions is the regional administrative agreement,which represents the constitutional principle of democratic centralism as well as respect for market entities.The extent of its binding force on the contracting parties depends on their integrity and good faith.