突发事件应对之地方立法质量研究——基于22部省级地方立法文本的考察

A Study on the Quality of Local Legislation for Emergency Response——Based on the investigation of 22 provincial local legislative texts

自《突发事件应对法》颁布实施以来,全国已有多个省级行政区以该法为直接立法依据进行了地方执行性立法。但学术界对此关注较少,缺乏对相关立法文本的透彻分析。因此,欲对突发事件应对地方立法质量获得客观认知,有必要将“突发事件应对地方立法质量的实然与应然”作为主要的问题意识来源,对地方立法文本的合法性、重复性、细化和创制情况等进行全面考察。研究发现,在合法性方面,部分地方立法文本存在异化应急预案修订条件、扩大预警警报发布主体、违法增设应急措施等与上位法相抵触的情形。在重复上位法方面,地方立法大体上沿袭了《突发事件应对法》的框架结构,但在内容上并不是简单抄袭上位法,“下法抄上法”现象在突发事件应对地方立法领域并不突出。在细化和创制性方面,地方立法依附于上位法的规定在应急管理组织体制、征用制度、应急预案、事后恢复与重建、目标考核制度等内容上进行了进一步细化。但综合来看,这些细化与创制因未触及制度核心、横向立法趋同突出、地域特色不明显等问题而整体创新不足。造成上述问题的原因,既有地方立法主体未能恰当行使地方立法权的因素,也有作为立法依据的《突发事件应对法》自身缺陷的影响。故需要从中央和地方两个层级共同着手,以法治原则确立中央与地方各自的立法权限,既要保证突发事件应急法制体系的统一,也要为地方立法预留合理的创新空间。地方立法可通过明确立法形式和立法目的,并辅之以专项审查的方式改进立法技术。属地方立法权限范围内的,地方立法机关应积极审慎地进行创新;属地方立法权限范围外的,地方立法机关可向全国人大常委会法制工作委员会提出立法建议,由全国人大常委会在修法时对应急组织体制、紧急行政程序条款、应急管理工作目标考核、应急征用这几类实践中争议较大的问题作出更为细致的制度安排。

Since the promulgation and implementation of the Law on Response to Emergencies,22 provincial administrative regions have carried out local executive legislation based on the law.However,the academic circles pay less attention to these and are lack of thorough analysis of relevant legislative texts.Therefore,in order to get an objective understanding of the quality of local legislation in response to emergencies,it is necessary to take"the reality and necessity of emergency response to local legislation quality"as the main source of problem consciousness,and comprehensively investigate the legitimacy,repeatability,refinement and creation of these local legislative texts.It is found,in terms of legitimacy,some local legislative texts are in conflict with the superior law,such as dissimilating the revision conditions of emergency plans,expanding the subject of early warning and warning release,and adding emergency measures illegally.In terms of repeating the upper law,the local legislation generally follows the framework of the Law on Response to Emergencies,but it is not a simple copy of the upper law in the content.The phenomenon of copying the upper law by the lower law is not prominent in the field of local legislation for emergency response.In terms of refinement and creativity,the local legislation is attached to the provisions of the upper law,and further refines the organizational system of emergency management,requisition system,target assessment system,emergency plan,post recovery and reconstruction,etc.But on the whole,these refinements and innovations are insufficient because they do not touch the core of the system,the horizontal legislative convergence is prominent,and the regional characteristics are not obvious.The reasons for these problems include not only the local legislative body's failure to properly exercise the local legislative power,but also the influence of the defects of the Law on Response to Emergencies.Therefore,we need to start from the levels of both the central and local governments,and establish their respective legislative powers according to the principle of rule of law.We should not only ensure the unity of emergency legal system,but also reserve reasonable innovation space for local legislation.Local legislation can improve the legislative technology by clarifying the form and purpose of legislation,supplemented by special review.If it is within the scope of the local legislative authority,the local legislature should actively and prudently carry out innovation;if it is outside the scope of local legislative authority,the local legislature can put forward legislative suggestions to the Legislative Work Committee of the Standing Committee of the National People's Congress,and the Standing Committee of the National People's Congress shall,when amending the law,make an assessment of the emergency organization system,the provisions of emergency administrative procedures,the assessment of emergency management objectives,and the emergency requisition.More detailed institutional arrangements should be made for more controversial issues in practice.