论香港特别行政区行政长官的紧急立法权

On the Emergency Legislative Power of the Chief Executive of Hong Kong SAR

1997年2月全国人大常委会所作的决定是一项政治决断,具有授予行政长官紧急立法权的宪制功能。行政长官紧急立法权具有完善香港紧急法制、应对香港社会风险、拓展“一国两制”弹性空间的必要性。其正当性可由香港紧急法治的发展阶段、行政长官的双首长地位、适合香港的紧急权力法律制度模式证成。其实施前提是事实的紧急情况而非拟制的紧急状态,实施时应明确行政长官紧急情况判断权与全国人大常委会紧急情况判断权的关系、应妥善处理紧急立法权实施的及时性与民主性的关系、紧急情况下比例原则的标准应从“是否合理”转向“是否明显不合理”。在监督方面,《紧急法》与《释义》关于附属法例的实施存在着冲突,立法会的立法审查可能会引发宪制危机;为了防止司法专断,相关司法审查应是有限度的,宜在具体个案中进行。

In February 1997 the Standing Committee of the National People’s Congress adopted a resolution,a political decision,which had the constitutional function of granting emergency legislative power to the Chief Executive of Hong Kong Special Administrative Region(SAR).It is necessary to grant the Chief Executive the emergency legislative power to improve Hong Kong’s emergency legislation,respond to social risks in Hong Kong,and expand the space of flexibly pursuing the policy of"one country,two systems".Its legitimacy can be justified by the development stage of the emergency rule of law in Hong Kong,the Chief Executive holding two topjobsinthe SAR,and the legislation one mergency power fitting Hong Kong.Itsimplementationispremised on factual rather than fictitious emergency;when such power is executed,the relationship between the right of the Chief Executive in declaring an emergency and that of the Standing Committee of the National People’s Congress should be clarified,and the relationship between the timely execution and democratic implementation of the emergency legislative power should be properly handled,and in case of emergency,the principle of proportionality should shift instand ard from"reason ableor not"to"unreason ableor not".Interms of supervision,contradiction exists between the Emergency Law and the Interpretation regarding the implementation of subsidiary legislation;the legislative review of the Legislative Council may lead to constitutional crisis;in order to prevent judicial arbitrariness,relevant judicial review should be limited and should bedoneinsp ecificcases.