基层赋权清单的法治化建构初探

A Preliminary Study on the Law-Based Lists of Delegated Powers at the Primary Level

赋权清单作为推进向基层放权赋能改革的制度载体,尚缺乏理论建构与制度设计。实证研究表明,赋权清单的外部形态呈现纵向上对赋权决定目录约束力不明、横向上与法定职权目录界限模糊的问题,赋权清单的编制规则亦存在主体适格性、依据差异性、程序正当性方面的问题。经分析发现,赋权清单兼具内部自制效力与外部法律效力,宜将其定性为“准行政立法”并适用行政立法裁量的思路。在宏观方案上,应选择并发展“赋权指导目录—赋权决定目录—权责清单”的层次结构,将以“职权公开”为核心目的的法定职权目录摒弃于赋权清单之外;在具体方案上,应以立法机关的提前介入审查补正编制主体的正当性,基于赋权类型的差异展开编制依据的选择与编制程序的建构。

The list of delegated powers,as a systemic carrier for promoting the reform of delegation and empowerment at the primary level,lacks theoretical construction and institutional design.Empirical research shows that the external form of the delegated power list has the problems of unclear binding effect on the catalogue of empowerment decisions vertically and blurring boundaries with the catalogue of statutory authority horizontally,and the rules for compiling the list of delegated powers also have the problems in terms of subject eligibility,basis differences,and procedural legitimacy.It is found that the list of delegated powers has both internal self-control and external legal effects,and it is appropriate to characterize it as"quasi-administrative legislation"and apply the idea of discretionary administrative legislation.In terms of macro scheme,the hierarchical structure of"empowerment guide catalogue-empowerment decision catalogue-list of powers and responsibilities"should be selected and developed,and the statutory authority catalogue with the core purpose of"disclosure of powers and responsibilities"should be excluded from the delegated power list.In terms of specific programs,the legitimacy of the main body of list compiling should be reviewed and corrected by the early intervention of the legislature,and the selection of the basis and the formulation procedure should be based on the differences in empowerment types.