地方人大宪法地位的历史变迁——兼论地方性法规的性质与特征  

The Historical Change of Constitutional Status of The Local People's Congress:A Comment on the Nature and Feature of the Local Regulation

作　　者：胡超 HU Chao

机构地区：[1]江苏大学法学院

出　　处：《中国政法大学学报》2024年第6期122-135,共14页Journal Of CUPL

基　　金：2023年江苏高校哲学社会科学研究一般项目“地方人大保证宪法全面实施制度体系化研究”(2023SJYB2143);教育部人文社会科学研究青年基金项目“应受行政处罚行为的违法阻却问题研究”(22YJC820017)的阶段性成果。

摘　　要：在中央国家权力出现实质分化的情况下,地方仍保留一定形式的“议行合一”是1954年《宪法》的重要特征。这一制度设计的直接原因是“中央议事,地方办事”原则所导致的地方人大议事职能的缺失,背后体现了实质同一性的民主理念。1954年《宪法》中的地方人大只是中央意志的地方执行机关。基于对实质同一性民主理念所必然带来的民主手段化与过度集权化的反思,1982年《宪法》开始扩大人民民主,加强地方人大的议事职能,使其转变为真正的地方民意机关。作为民意机关制定的法规范,地方性法规具有“准法律性”,“无需授权的创制性”是其核心特征,但其制定权限范围受法制统一与自身民主能力的制约。中央对于地方性事务只能进行框架性立法,以使地方性法规仍然保有一定的创制空间。基于地方人大的宪法地位与地方性法规的性质,同上位法“不一致”是地方性法规的常态,并不当然构成同上位法“相抵触”。It is an important feature of the 1954 Constitution that local governments still retain a certain form of“combination of deliberative and executive powers”,in the case of the substantial division of state power in the central government.The direct reason is the lack of deliberative functions of local people's congresses caused by the principle of“central government deliberates and local government implements”,which reflects the democracy based on the substantive homogeneity.The local people's congresses in the 1954 Constitution are local executive organs of the central will.Given the instrumentalization of democracy and centralization of powers,the 1982 Constitution began to enhance people's democracy,strengthen the deliberative functions of local people's congresses,and transform them into real local organs of public opinion.As legal norms formulated by organs of public opinion,local regulations have a“quasi-legal nature”,“creativity without authorization”is its core feature,but the scope of their formulation authority is restricted by the unity of the legal system and the democratic capacity of local people's congresses.The central government can only make framework legislation on local affairs so that local regulations still have a certain creative space.Based on the constitutional status of local people's congresses and the nature of local regulations,“,inconsistency”with superior laws is normal,and it does not necessarily constitute“contradiction”with superior laws.

关 键 词：地方人大 央地关系 地方性法规 法律保留原则 

分 类 号：D921[政治法律—宪法学与行政法学]