论地方立法权限和范围——兼评温州市地方立法立项

On the Scope and Authority of Local Legislation——and on Project Establishment of Local Legislation of Wenzhou City

《立法法》规定设区的市可以就城乡建设与管理、环境保护、历史文化保护等方面的事项分别制定地方性法规和规章。由于《立法法》对设区的市地方立法权限和范围的高度概括和抽象,造成了地方立法立项应然与实然范畴上的严重分歧。地方立法立项的实践表明,地方立法权限和范围的实然推论获得了普遍认同和容许。因此,有必要对地方立法权限和范围的学理推论向更为宽泛的方向进行修正,按政府职能角度建构适应地方立法实际需要的推论结论。以温州市地方立法立项为例,地方立法立项应当在实然语境下建立起人大主导、政府从属和社会参与的基本格局,以现实的、历史的和比照的方法,探索形成有特色的地方立法项目库。

Legislation Law provides that districted cities can enact local decrees and rules for matters of urban and rural construction and management,environmental protection,and historical and cultural protection.Since the provision on the scope and authority of local legislation in Legislation Law are too general and abstract,there are serious differences between the ideal and actual spectrum of items belongs to local legislation.The practice of project establishment of local legislation shows that the actual scope and authority of local legislation is universally recognized and allowed.It is necessary to revise the theoretical justification on the scope and authority of local legislation,and make conclusions according to the functions of the government to meet the practical needs of local legislation.As for the local legislation of Wenzhou City,a basic pattern of decisionmaking on project establishment of local legislation should be established,in which the people's congress is a dominant player,the government is a subordinate player and the public are participatory players;and a project pool of local legislation with local features should be explored and set up.