央地关系视角下地方政府规范性文件制定研究

Interaction between Local Governments and Central Government Focusing on the Formulation of Local Regulatory Documents

我国地方政府具有上传下达的双重属性。《宪法》和《地方组织法》均明确规定地方政府具有管理地方性事务和执行中央、上级政府命令的职责。这种独特的分权体制被认为是奠定中国经济社会发展的制度基础。基于地方政府规范性文件的实证研究发现,地方政府的规范性文件更倾向于落实省级政策,同时对地方性事务予以了一定回应。但是,地方政府规范性文件的制定受财政因素的影响更大,人口、地理因素的影响非常有限,规范性文件制定受到的经济激励较为明显。此外,享有地方立法权的地级市并没有制定更少的规范性文件,地方性法规、地方政府规章并没有替代规范性文件的制定。显然,单纯指望赋予设区的市以地方立法权,难以抑制地方政府制定红头文件的冲动。

Local governments in China plays a connecting function in that they have to spread and implement the central government's policies and report to the central government the policy effect in their administrative regions.Both the Constitution and the Organic Law of the Local People's Congresses and Local People's Governments of the PRC clearly stipulate that local governments have responsibility to manage local affairs and execute the orders from the central government.This unique system of distributing administrative power is considered to be the institutional foundation for China's economic and social development.Empirical studies on the formulation of regulatory documents by local governments show that local governments are more inclined to implement policies issued by the provincial governments and respond to local affairs.However,local factors such as population and geographical elements play a very limited role in formulating the regional regulatory documents.On the contrary,the economic incentives produce an obvious effect.It is also worthy of note that the prefecture-level cities with local legislative power have not made fewer regulatory documents:that is,the formulation of local regulatory documents has not been replaced by the local decrees and local government regulations.It is obvious that only the delegation of legislative power cannot curb local governments'desire to formulate regulatory documents.