论中央与地方关系中的“积极性”与“主动性”原则——基于我国《宪法》第3条第4款的考察  

On the Principles of Initiative and Activeness in Relationship between the Central and Local Governments:——Observation Based on Paragraph 4 of Article 3 of the Constitution of China

作　　者：郑毅[1] Zheng Yi

机构地区：[1]中央民族大学法学院,北京100081

出　　处：《政治与法律》2019年第3期58-76,共19页Political Science and Law

基　　金：2017年度国家法治与法学理论研究项目"<立法法>修改后设区的市级立法权实施的理论与实践问题研究"(项目编号:17SFB3011)的阶段性成果;;北京市优秀人才培养资助计划青年骨干个人项目"北京城市治理法治化问题研究";国家民委中青年英才支持计划"宪法视野下的新时代民族法制发展与改善研究"资助

摘　　要：我国《宪法》第3条第4款中的"主动性"和"积极性"是调整中央与地方关系的基本原则,但对其规范内涵的关注和研究非常不够。从历史发展、规范现状、制度实践和改革趋势的综合考察可知,"积极性"的静态内涵既包括事权划分的明确性和规范性,也包括作为隐藏要件的与事权范围相匹配的财政资源的匹配程度,其动态内涵则体现为针对事权归属或财政资源争议的纠纷解决机制。比较而言,"主动性"更易被忽视,其内涵既在于将"不待外力推动而行动"的一般释义还原至宪法规范的语境,也能从其与积极性的对比中彰显,还能从我国五部宪法(文件)对央地关系原则体系结构的不同安排中把握。目前的地方试点、隐性对抗策略、地方联合体和地方责任弱化等都可视作主动性的实践,基于"中央统一领导"的前提,并非所有地方主动性实践都能为《宪法》第3条第4款所认可。The "initiative" and "activeness" set forth in Paragraph 4 of Article 3 of the Constitution of China is the basic principle of adjusting the relationship between the central and local governments,but the research into the connotation of this rule is seriously scarce. From a comprehensive investigation of historical development,current norms,system practice and reform trend,it is found that the static connotation of "in itiative" includes not only the clarity and normativeness of the division of administrative power but also the match as a hidden element between the fiscal resources and the scope of administrative power,while its dynamic connotation is reflected as the dispute resolution mechanism for controversies over the holder of certain administrative power or fiscal resources. Comparatively,the "activeness" is overlooked more easily. Its connotation lies in restoring the general meaning of "action without push by outside force" in the context of constitutional norms and can be shown by its comparison with the initiative and mastered from different arrangements of systematic structure and the principle of the relationship between the central and local governments in five Constitutions (Instruments). The current local pilots,invisible counterplot,local union and weakened local responsibility may be regarded as the practice of activeness,but based on the premise of unified central leadership,not all local practices of activeness are approved by Paragraph 4 of Article 3 of the Constitution.

关 键 词：《宪法》 中央与地方关系原则 积极性 主动性 统一领导 事权 

分 类 号：DF2[政治法律—宪法学与行政法学]