地方性法规与地方政府规章分工的反思与重塑  

Rethinking and Reshaping the Legislative Division of Labor Between Local Laws and Local Government Regulations

作　　者：傅爱竹 FU Aizhu(School of Law,Shandong University,Qingdao 266237,China)

机构地区：[1]山东大学法学院,青岛266237

出　　处：《现代法学》2025年第1期163-177,共15页Modern Law Science

基　　金：国家社科基金重大项目“当代中国数字法学基本范畴体系研究”(23&ZD153)。

摘　　要：关于地方性法规与地方政府规章如何分工,新修改的《立法法》并未明确回答,学界亦存在分歧。依据《宪法》有关规定,地方性法规与地方政府规章的分工应依“发挥比较优势”“动态调整”“职权法定”为主导、辅助及兜底原则。既有方案以“根据论”和“事项论”为分工标准,既不符合上述原则的要求,亦难以应对复杂的立法事务。当前地方数据立法有效规避了以往地方立法的诸多弊端,其路径趋向启示地方立法横向分工的重心并非权限划分,而在于权能协作。应建构以“根据”和“事项”为前导要素、以“权能”为核心要素的阶梯式分工标准体系。对于地方性法规与地方政府规章共同立法事项,依立法事务所属实践成熟与否,在立法模式上应分别采用“促进—管理”模式或“综合—专门”模式。About the division of labor between local laws and local government regulations,the newly amended Legislation Law of the People’s Republic of China does not offer any explicit answer,and the Chinese academia also remains divided.According to the relevant provisions of the Constitution of the People’s Republic of China,such division of labor between local laws and local government regulations should be based on the three principles of“leveraging comparative advantages”“dynamic adjustment”and“statutory power and authority”,which are the leading,auxiliary,and underlining principles respectively.The existing schemes,which adopt the Doctrine of Basis and the Doctrine of Subject Matter as the criteria for the division of labor,are not in line with the requirements of the above principles,and therefore cannot adequately address complex legislative affairs.The current local legislation concerning data has effectively avoided the pitfalls of previous local legislative practices,with its developmental trajectory suggesting that the focus of horizontal division in local legislation lies not in jurisdictional demarcation but rather in functional collaboration.A tiered division of labor standard system should be established,with“basis”and“subject matter”serving as preliminary elements and“functional authority”as the core component.For matters requiring joint legislation by local laws and government regulations,differentiated legislative models should be adopted:either a“promotion-management”model or a“comprehensive-specialized”model,depending on whether the practice based on which the corresponding legislative affairs are based is mature or not.

关 键 词：地方性法规 地方政府规章 立法分工 数据立法 立法权能 

分 类 号：DF01[政治法律—法学理论]