《立法法》中的“根据”“依据”“不抵触”之辨——兼论行政法规及规章的立法权限

The Discrimination of “In Accordance with”,“Based on”and “Not Contravening”in the Legislation Law——Also Discussing the Legislative Power of Administrative Regulations and Rules

2015年新修改的《立法法》新增了对行政规章的限制:没有上位法"依据",不得设定权利义务关系。此处的"依据"应作严格解释,即有明确的法条授权。理由可见于《宪法》和《立法法》配置立法权限时的不同表达。《宪法》明确区别了行政立法和人大立法:行政机关制定行政法规及规章时应遵循"根据"原则,地方权力机关制定地方性法规时只需遵循"不抵触"原则。《立法法》中虽用了相同的字眼,却通过列举立法权限等方式,悄然扩大了行政立法的权限范围,致"根据"之含义与"不抵触"无异,行政机关的职权也成了"根据"之一。"根据"的扩大或是"无法可依"之下国务院制定行政法规的现实需要,但同时带来了行政规章的滥觞。明确制定规章时的"依据"原则,可使《立法法》中行政法规和行政规章立法权限之区别得以明确界清。

The Legislation Law （2015 amendment） adds new restrictions on administrative rules. Those rules shall not set out any relationships of rights and obligations if there is no superordinate law as the ＂basis＂. This ＂basis＂ means the authorization from the superordinate law. The reasons lie in the different expressions of the Constitution and the Legislative Law when legislative powers are distributed, The Constitution clearly distinguishes the administrative legislation from the legislation of the National People＇s Congress： the principle ＂ in accordance with＂ shall be followed when administrative regulations and rules are formulated, while the principle ＂not contravening ＂ shall be followed when local regulations are formulated.