改革试验中地方“先行先试权”的法律性质与走向分析

An Analysis of the Legal Nature and Trend of the First-Trial Right in the Reform Experiment

我国在治理模式上存在"一般系列"与"试验系列"的分野,试验的广度与深度取决于中央授予试验区的"先行先试权"。国家层面重大制度变革的试验均由党中央决策,全国人大或人大常委会授权,个别试验区还存在国务院或地方人大的二阶授权,通过授权,试验区获得了法律意义上的"先行先试权",表现为立法变通权或暂停执行权;而旨在探索地方个性化问题解决方案的试验由国务院授权,试验区获得的是创新任务和不确定的隐性利益。"试验性"、"无授权不能为"是"先行先试权"的本质特性。未来有必要修正检讨经济特区享有的一般立法变通权,回复试验本质;完善效用指标下自贸港先行先试权的结构;将合法界域内的地方创新逐步回复地方"两个积极性"范畴。

The governance model in China can be divided into general governance and experimental governance.The breadth and depth of reform experiments depends on the first-trial right granted from the central government to certain local government.Experiments on national institution reform are decided by the Party Central Committee,authorized by the National People's Congress or the Standing Committee of the National Peoples Congress,in some circumstances there are also second-level authorizations from the State Council or local peoplezs congresses,the first-trial right which experimental areas got includes the right of legislation inconsistency or the right to suspend execution.The experiments aiming at exploring localized problem solutions are authorized by the State Council,the experimental area obtains innovative tasks and uncertain hidden benefits."Experimental"and"unauthorized cannot do"are the essential characteristics of the first-trial right.Based on the foregoing analysis,it is necessary to review the general breakthrough legislation right which the special economic zones got in last century,reverting to its experimental nature,improve the structure of first-trial rights granted to the free trade experimental area,and gradually restore local innovation within the legal boundary to the local"two positives"category.