设区的市地方立法权“限制条款”及其妥当性

The “Limitation Clause” of the Legislative Power of the Local Authority in the Districted Cities and Their Validity

《立法法》将地方立法权主体扩大到所有设区的市,但设置了"限制条款"。判断地方立法与上位法是否"相抵触原则",其标准是(1)在权利与义务关系中,下位法限缩、取消上位法已经确认的权利或者扩大、增加上位法没有设置的义务;(2)在职权和职责关系中,下位法扩大、增加上位法没有授予的职权或者限缩、取消上位法已经设置的职责。对"限制条款"中的事项应当作扩大性解释,以适应地方经济与社会发展的需要,且"等"也应作"等外等"解释。对地方立法权设置限制的目的具有正当性,但在所采取的手段上,与目的之间存在着关联性的欠缺,若不作一些补救性的对策,如立法解释、强化人大立法主导性,甚至推进"合宪性审查工作"等,国家法制统一的立法目的恐怕难以实现。

The"Legislation Law"extends the main body of local legislative power to all municipalities,but sets a"restriction clause".Judging whether the local legislation and the supervisory law"contradict the principle",the criteria are:(I)In the relationship between rights and obligations,the subordinate law is limited and the rights that have been confirmed by the supervisory law are canceled or expanded,and the obligation not provided for by the supervisory law is increased;(II)In the relationship between functions and responsibilities,the lower law is expanded to increase the authority or restriction not granted by the upper law and to cancel the duties that the upper law has already set.The items in the"Restrictions"should be expanded to explain the needs of local economic and social development,and"such as"should also be interpreted as"extraterritorial".There is legitimacy for the purpose of setting restrictions on local legislative power.However,there is a lack of relevance between the means to be adopted and its purpose.If no remedial measures are taken,such as legislative interpretation,strengthening the legislative dominance of the NPC,or even promote"constitutional review work",etc.,the legislative purpose of national unity of the law is probably difficult to achieve.