地方立法体系的结构优化理据与路径

On the Rationale and Path of Structural Optimization of the Local Legislative System

新时代中国特色社会主义法治语境下,坚持全面依法治国、以良法保障善治是实现中国式现代化的必由之路。地方立法是特色法治的关键组成部分,提高立法质量、加强立法的体系性建设,已成为地方立法工作的重要内容和主要方向。地方立法体系应当是由不同层级地方立法活动及其产生的不同效力位阶的法律文件按照一定结构组成的有机系统。当前地方立法体系中存在着深刻的结构性问题,其主要表现为:数量结构不均衡、位阶结构不清晰、结构互动性不足。产生问题的原因,首先在于长期以来“工具主义法律观”对地方立法活动产生了消极影响;其次是现行立法规则存在诸多模糊,无法对地方立法实践提供充分指引;还有立法过程中对于“不抵触原则”的迷信;以及现行立法体制下地方政府热衷追求法治政绩的内在驱动等。这些结构性问题严重制约了地方立法作用的发挥,地方立法体系结构亟待优化:在理念层面,要以“治理主义法律观”作为主导,注重良法和善治的协调;在规则层面,要不断完善和明确法律规定,对模糊问题做出回应和解决;在制度层面,可以尝试探索构建地方立法“自下而上”的层级演进机制;在现实层面,要回归地方立法的本位,不断加大地方立法对地方法治需求的回应度等,以期充分发挥地方立法在充实特色法治体系与建设特色法治国家中的独特作用。

In the context of the socialist rule of law with Chinese characteristics in the new era,advancing law-based governance on all fronts and achieving harmonious governance by good law is the Chinese path to modernization.Improving the quality of legislation and strengthening the systematicity of legislation have become the important content and main direction of local legislation which is the key component of the rule of law.The local legislative system should be an organic system which consist of local legislation at different levels.At present,there are profound structural problems in the local legislative system,which are mainly manifested as:unbalanced quantitative structure,unclear hierarchical structure and insufficient structural interaction.The main causes include the negative impact of“the instrumentalism view of law”,the vagueness of the current legislative rules,the superstition of“non-contravention principle”,and the drive of pursuing political achievements in legislation,etc.The structure of local legislative system needs to be optimized by following measures as updating the idea of local legislation,improving the legislative rules to guide the legislative activities,building the hierarchical-evolution mechanism of local legislation,and actively responding to the local governance needs,in order to play the unique role of local legislation in enriching the system of rule of law with Chinese characteristics.