特色与融贯:生态文明建设地方立法的体系构建

Characteristic and coherence:system construction of local legislation for ecological civilization construction

生态文明建设地方立法是保证宪法生态文明条款实施的重要途径。地方享有立法权的主体进行生态文明建设立法时,应当遵循宪法上的哪些规范依据,又如何对宪法生态文明条款予以落实,是生态文明建设地方立法体系构建的应有之意。基于此,该研究采取法规范分析的法学方法,明晰宪法中生态文明建设政府职责条款的规范内涵,包括确立政府生态文明职责目标、明晰政府具体生态文明建设与监督职责、完善政府生态文明建设组织程序保障、健全生态文明建设的制度性保障等四个方面。在此基础上,提炼出生态文明建设地方立法的合宪性逻辑,包括明确规范依据是合宪性首要前提,遵循宪法规范为合宪性重要内容,界定特色边界需合宪性规范授权。生态文明建设地方立法是对上位法的具体化。因此,立法中如何平衡中央法制统一与地方治理灵活性之间的张力,是生态文明建设地方立法依宪、依法构建的关键。对于地方立法自主性内容,生态文明建设立法应当保持特色;对于地方立法从属性内容,生态文明建设立法应当保持融贯。在特色空间方面,应当从规范创制性生态文明建设立法的先行先试功能和增强实施性生态文明建设立法的因地制宜实效两个方面来凸显地方立法特色。在融贯要求方面,应当从立法依据的程序正当、制度体系的多维保障、行政义务的权责匹配等三个方面来规范地方立法融贯。总之,特色是保持地方两个“积极性”的要求,融贯是保证一国法制统一的前提,只有这样才能助力生态文明建设地方立法的体系构建。

The local legislation of ecological civilization construction is an important way to ensure the implementation of the ecologi⁃cal civilization clause of the constitution.When the local subjects with legislative power carry out legislation on ecological civilization construction,what normative basis should be followed in the constitution and how to implement the ecological civilization clauses of the constitution lead to the necessity of constructing the local legislative system for ecological civilization.Based on this,this article adopts the legal method of legal norm analysis to clarify the normative implications of the government’s ecological civilization construction re⁃sponsibilities in the constitution from four aspects,including establishing the government’s ecological civilization responsibility objec⁃tives,clarifying the government’s specific ecological civilization construction and supervision responsibilities,developing the govern⁃ment’s ecological civilization construction organizational procedures,and improving the institutional guarantee for the construction of ecological civilization.On this basis,this article extracts the logic of the constitutionality of the local legislation for ecological civiliza⁃tion construction,including clarifying the normative basis as the primary premise of constitutionality,following the constitutional norm as an important content of constitutionality,and defining the characteristic boundary and authorizing it according to the norm of consti⁃tutionality.The local legislation of ecological civilization construction is the embodiment of the higher law.Therefore,how to balance the tension between the unification of the central legal system and the flexibility of local governance in legislation is the key to the con⁃struction of local legislation in accordance with the constitution and the law for the construction of ecological civilization.As for the au⁃tonomous content of local legislation,ecological civilization construction legislation should maintain its characteristics.As for the subor⁃dinate content of local legislation,ecological civilization construction legislation should remain coherent.In terms of characteristic space,the characteristics of local legislation should be highlighted from two aspects:the pilot function of regulating the legislation for the construction of creative ecological civilization and the practical effect of strengthening the legislation for the implementation of eco⁃logical civilization construction according to local conditions.In terms of coherence requirements,the coherence of local legislation should be regulated from three aspects:the procedural legitimacy of legislative basis,the multi-dimensional guarantee of the institution⁃al system,and the matching of powers and responsibilities of administrative obligations.In brief,the characteristic is the requirement of maintaining the two‘activenesses’of the locality,and coherence is the premise of ensuring the unity of a country’s legal system.Only in this way can it help to build a system of local legislation for ecological civilization construction.