新时代特定区域法制先行的法理分析

A jurisprudential analysis of the priority of rule of law in specific regions in the new era

新时代,为推动形成更高层次改革开放新格局,党和国家在自由贸易试验区、上海浦东新区、海南自由贸易港等特定区域设立了一系列与行政区划相区别,而由国家权力机关授权行为明确支持的特殊区域。这些特殊区域的省级人大及其常委会在遵循宪法以及法律和行政法规基本原则的前提下,可以根据授权制定特定区域法规,对法律、行政法规等作出变通规定,从而让特定区域法制先行起来;特定区域法规的授权事项比经济特区法规更加宽广,甚至涉及法律保留和行政法规保留事项,是经济特区法规升级版和扩大版,是2.0版本。新时代特定区域法制先行的法律属性,应是一种调整适用型授权立法。特定区域法制先行面临的最大合宪性诘难,就是如何与宪法国家法制统一原则相融合。传统宪法理论认为,国家法制统一原则就是在中央与地方立法关系上,地方制定的下位法不得与中央制定的上位法相抵触。不同类型地方性法规对应着不同的抵触类型,适用不同判断标准。特定区域法规这种特殊先行性法规不存在法权抵触,不适用法条抵触,而应适用法意抵触,只要没有间接抵触法律、行政法规等上位法基本原则,就没有违反宪法国家法制统一原则。全国人大常委会在授权事项、授权主体、授权行为上具有宪法依据,可以从宪法上职权条款中获得合宪性推定,其授权特定区域法制先行符合宪法序言国家根本任务精神,因而是合宪的。新时代特定区域法制先行符合宪法的精神、原则和规定,但并不意味着可以偏离法制轨道。特定区域法制先行本身在理论上就存在诸多争议,如不对其实践过程进行监控,就可能放大实践中的失误,造成人民对新时代改革开放事业的质疑。因此,有必要加强对其监控,使其全程纳入法制轨道。按照时间节点先后顺序,可以从授权前的合宪性审查、制定后的备案审查、实施中的评估报告义务三个方面加强对特定区域法制先行的监控。2023年《中华人民共和国立法法》第二次修订,全面总结了过去十年的经验与成就,将重大改革特别授权机制规范化,将上海浦东新区法规、海南自由贸易港法规等改革创新成果法律化,并为新时代特定区域法制先行预留了法律空间。

In the new era,in order to promote the formation of a new pattern of higher level reform and opening up,the Party and the state have established a series of special regions in specific areas such as the Free Trade Pilot Zone,Shanghai Pudong New Area,and Hainan Free Trade Port,which are different from administrative divisions and are clearly supported by authorized actions of state power organs.The provincial people’s congresses and their standing committees in these special regions can,on the premise of following the constitutional provisions and the basic principles of laws and administrative regulations,formulate specific regional regulations based on authorization,make adaptations to laws and administrative regulations,so as to prioritize the rule of law in specific regions.The authorization matters of specific regional regulations are broader than those of special economic zone regulations,and can even involve legal and administrative regulations reservation matters.It is an upgraded and expanded version of special economic zone regulations,which is version 2.0.The legal attribute of prioritizing the rule of law in specific regions in the new era should be a type of adaptive authorization legislation.The biggest constitutional challenge faced by the rule of law in specific regions is how to integrate it with the principle of unified national legal system in the constitution.According to traditional constitutional theory,the principle of unified national legal system is that in the legislative relationship between the central and local governments,the subordinate laws formulated by local governments must not conflict with the superior laws formulated by the central government.Different types of local regulations correspond to different types of conflicts and apply different judgment standards.Specific regional regulations,as a special precedent regulation,do not have legal rights conflicts and should not be subject to legal provisions conflicts.Instead,they should be subject to legal connotations conflicts.As long as there is no indirect conflict with the basic principles of laws,administrative regulations,and other superior laws,there is no violation of the principle of unified national legal system in the constitution.The Standing Committee of the National People’s Congress has constitutional basis in terms of authorized matters,authorized subjects,and authorized actions.It can obtain a presumption of constitutionality from the terms of reference in the constitution,and its authorization of priority of rule of law in specific regions is in line with the spirit of the fundamental task of the state in the preamble of the constitution,therefore it is constitutional.The priority of rule of law in specific regions in the new era is in line with the spirit,principles,and provisions of the Constitution,but this does not mean that it can deviate from the track of the rule of law.There are many controversies in theory regarding the priority of rule of law in specific regions.If the practical process is not monitored,it may amplify errors in practice and cause people to question the cause of reform and opening up in the new era.Therefore,it is necessary to strengthen its monitoring and ensure that it is fully integrated into the rule of law track.According to the chronological order of time nodes,monitoring of the rule of law in specific regions can be strengthened from three aspects:constitutional review before authorization,filing review after formulation,and evaluation report obligations during implementation.The second revision of the Legislative Law in 2023 comprehensively summarizes the experience and achievements of the past decade,standardizes the special authorization mechanism for major reforms,legalizes reform and innovation achievements such as Pudong New Area regulations and Hainan Free Trade Port regulations,and reserves legal space for the priority of rule of law in specific regions in the new era in several clauses.