乡村自治与国家法治的界分——基于“辅助性原则”的视角

The Boundary between Rural Autonomy and National Rule of Law——from the Perspective of Subsidiarity

党中央在“乡村振兴战略”中提出要“坚持自治、法治、德治相结合”的乡村基层治理体系,其中“自治与法治相结合”居于基础地位,是德治的前提,而要实现“自治与法治相结合”,须弄清二者的界分,否则二者相结合就无从谈起。本文在理论上借用了欧盟的宪治原则——“辅助性原则”,以此作为我国乡村自治与国家法治的界分原则,其消极面向可以为乡村自治提供独立性支撑,其积极面向可以为国家治理提供行动空间。在实践中,通过对精选的70份裁判文书的分析,我们发现:在民事案件中,民间习惯和风俗多被优先适用;在程序违法和刑事违法案件中,国家法的适用享有绝对优先权;在自治与法治共同发生影响且形成僵局的案件中,涉及集体成员身份确认之诉,由自治组织决定,涉及社会权、经济权、生存权侵害之诉,由法院决定。自治与法治冲突时遵循的是先自治后法治的“辅助性原则”的精神。

The goal of“building a rural grassroots governance system that combines autonomy,rule of law and rule of virtue”is raised by CCCP in the“Rural Revitalization Strategy”,in which“the combination of autonomy and rule of law”plays a fundamental role and acts as the premise of“the rule of virtue”.However,the important premise for the“combination of autonomy and rule of law”,theoretically speaking,is the clarification of the boundary between the two.Otherwise,it is impossible for them to merge with each other.In this paper,the principle of“subsidiarity”,a constitutional governance principle of the European Union,is adopted as the boundary principle between rural autonomy and national rule of law.Its negative aspect can provide independence support for rural autonomy,while its positive aspect can provide action space for national governance.By analyzing 70 carefully selected adjudication documents in practice,we find that folk customs are applied preferentially in civil cases,whereas in the cases of violation of legal procedure and criminal law,the law enjoys absolute priority.As to the special cases in which both autonomy and the rule of law function together,the ones involving confirmation of collective membership shall be decided by the self-governing organization,and the ones involving infringement of social,economic rights and the right of existence shall be decided by the court.When there is a conflict between autonomy and rule of law,the subsidiarity principle of“autonomy before rule of law”is followed.