区域协同立法层级关系困境的疏解

A Way out of Dilemmaon Hierarchy of Regional Collaborative Legislation

2022年《地方各级人民代表大会和地方各级人民政府组织法》首次以法律的形式明确了区域协同立法的法律地位。区域协同立法“入法”后,需要处理好自身所面临的层级关系,以明确自身的权力空间与运行规则。区域协同立法在处理层级关系方面呈现出以下困境:事项范围缺乏明确界定;趋同程度没有客观标准;选择协同立法抑或统一立法欠缺理性规则;上级立法机关工作指导的强度难以把握。这些困境会加剧协同立法与单独立法之间的紧张关系,损害协同立法的必要性、实效性、合法性。疏解协同立法所面临的困境,应当秉持自下而上的行动逻辑,明确单独立法、协同立法、统一立法依次出场的顺序。辅助原则为此提供了理论支撑。在此基础上,通过界定跨行政区域事务,明确协同立法的事项范围;通过划定协同立法的功能界限,确立选择协同立法抑或统一立法的理性规则;通过秉持自制的立场,理顺单独立法和协同立法、统一立法之间的动态关系。

In 2022, the Organic Law of the Local People’s Congresses and Local People’s Government confirms the legal status of regional cooperative legislation with form of law for the first time. After the cooperative legislation is “into the law”, it is necessary to deal with the hierarchical relations that it faces, so as to clarify its own power space and operating rules. Cooperative legislation presents the following dilemmas in dealing with hierarchical relations: there is no clear definition of the scope of matters;there is no objective standard for the degree of consistency;there is no rational rule for choosing cooperative legislation or unified legislation;the strength of the work guidance of the high-level legislative legislature is difficult to grasp. These dilemmas will exacerbate the tension between cooperative legislation and separate legislation, and damage the necessity, effectiveness and legality of cooperative legislation. To alleviate the dilemma faced by cooperative legislation, we should adhere to the bottom-up logic and clarify the order in which separate legislation, cooperative legislation and unified legislation appear in turn. The subsidiary principle provides theoretical support for this. On this basis, we can clarify the scope of matters of cooperative legislation by clarifying the meaning of “trans-regional affairs”;We can establish rational rules for choosing cooperative legislation or unified legislation by delineating the functional boundaries of cooperative legislation;We can straighten out the dynamic relations between separate legislation, cooperative legislation and unified legislation by adhering to a self-control position.