经济特区立法研究

发布时间：2018-05-25 19:57

本文选题：立法 + 经济特区立法　；参考：《吉林大学》2012年博士论文

【摘要】：我国经济特区从成立至今，已有逾三十年的光阴，经济和社会发展均取得了举世瞩目的成就，成为中国改革开放成功政策的缩影。总结这段历史，就会发现经济特区的立法工作在其中起着不可替代的巨大作用。经济特区被授予立法权后，充分利用立法资源优势，以立法促社会、经济的改革和发展。以深圳为例，截至2010年底，深圳市人大及其常委会共通过法规及有关法规问题的决定370项，其中特区法规243项。在深圳特区经济法规中，约有三分之一是在国家相关法律法规尚未出台的情况下先行先试的；约有三分之一是根据特区经济体制和对外开放的实际需要，对国家法律法规进行必要的变通、补充和细化；另约有三分之一是为加强行政法制、环境保护、特区城市管理以及精神文明建设需要而制定的。其他几个经济特区的情况也基本如此。如果将经济特区立法放在整个国家法制的发展来考量的话，经济特区立法有如下特点：一是实验性，经济特区立法往往在国家相关立法尚未出台的情况下先行先试，为建设和完善我国法制积累了诸多有益的经验；二是超前性，经济特区承担的先行先试的政治和社会责任，表现在立法工作上就是为更大范围的甚至全国性的立法提供了经验借鉴；三是影响性，经济特区根据自身经济社会发展状况，制定了许多填补国家立法空白的法规。经济特区最大的优势是体制方面的优势，最重要的资源是改革创新的资源，对全国最大的贡献是通过改革创新在制度建设方面现行探路，当好排头兵、试验田。正因为如此，特区立法权成为经济特区最大的政策优势，对于开创经济特区事业新局面发挥着基础性、根本性的制度平台作用。对此，经济特区要充分发挥立法优势，切实用好“双重立法权”；同时，司法机关也要在司法实践中高度重视特区立法，准确适用特区立法裁判案件，维护好、发展好经济特区的政策优势。本文共分七章。除第1章绪言和第7章结束语以外，第2章从经济特区立法的性质、历程和作用切入，对经济特区立法的概念和特征进行概述，并对其发展历程进行划分阶段，进而指出经济特区立法在整个国家法制中的地位和作用。第3章对经济特区立法权进行详细、深入地分析。梳理了经济特区授权立法权和地方立法权的法律渊源，指出其各自的权限范围和行使原则；对经济特区双重立法权的协调进行分析，指出其改进的路径。第4章检视现行经济特区立法的程序，分析其在立项、修改等方面存在的问题，提出完善的建议。第5章论述经济特区立法质量的提高，评估其立法质量的现状，指出其立法质量存在的问题及原因，提出提高其立法质量的对策建议。第6章重点论述经济特区立法的适用，包括其效力、司法适用及法律冲突和解决办法。首先，系统梳理经济特区立法的概念、性质、历程和作用。我国经济特区立法是整个国家立法体制中的重要组成部分。2000年7月施行的《中华人民共和国立法法》第六十三条还规定了经济特区所在地的市属于“较大的市”，其人大及其常委会有权制定地方性法规；同时，于第六十五条又规定了经济特区的授权立法权。这样，经济特区获得了“双重立法权”，一个是制定地方性法规的一般立法权（即职权立法权），一个是制定经济特区法规的授权立法权。在经济特区立法中，“双权”立法并行，特别是其中授权立法概括与模糊性，也引发了对之合宪性、合法性以及必要性的诸多质疑。在“双重立法权”的体制之下，如何协调授权立法与职权立法的关系，是经济特区立法中不可回避的一个重要问题。总之，经济特区立法无论是在国家法治建设的层面上，还是在对经济特区本身的改革发展上，都具有着极其重要也十分特殊的地位。其次，专门研究经济特区立法权的配置，对授权立法权和职权立法权各自的渊源、特征、权限范围和行使原则等进行系统梳理和总结，，提出“双权协调”的路径和方法。这里面主要有两个方面：一是授权机关的立法和被授权机关依据授权所立之法其效力等级是相等还是不等？目前理论界存在“相等论”和“不等论”两说。“相等论”之理由是依法律中关于委托与代理之关系来视同立法中授权与被授权之关系；“不等论”之理由是授权与被授权两个立法主体之地位、层级不同，故其所立之法的位阶亦不相同。二是被授权机关的授权立法与职权立法其效力等级是不等还是相等。对此理论界也存在着“不等论”与“相等论”两说。“不等论”之理由是授权立法所授之权属于上级机关立法权的组成部分，因而授权立法的效力等级高于依职权立法制定的法律规范的效力等级，因此，授权立法可以制定“超格”的地方法规。“相等论”之理由是两者的立法主体是同一的，其所立之法的位阶和效力等级理应同一。对此，关键是要解决好经济特区立法机关行使“双重立法权”时冲突的程序设置问题，应尽早由全国人大或其常委会出台针对经济特区立法中的权限问题作出具体规定。再次，改进经济特区立法的程序制度，检视其中存在的突出问题。立法活动包括了制定、修改或者废止法的活动，经济特区立法程序在立法规划、起草、审议、表决中都存在诸多问题。有的是由于在立法程序中缺乏某一项原则性的东西，如部门立法的现象就是因为在立法活动中，立法机关的积极性、主动性不够等；还有的则是因为某些制度的整体性缺失而导致的，如在立法规划、草案起草等阶段都存在调研论证不充分等。为此，本文提出，经济特区立法在程序上要重点做到以下六点：一是增强立法机关主导性，淡化行政主导立法的痕迹；二是构建完善的调研制度，强化立法中的实体性论证；三是建立统一的起草制度，努力提高法规草案的质量；四是进一步完善听证制度，保证公众参与的渠道畅通；五是完善现行的审议制度，提升审议的质量和效率；六是改进现行的表决制度，促进表决机制的合理优化。复次，就提高经济特区立法质量提出具体的意见和建议。从总体上看，经济特区立法的质量状况是较好的。但是，由于经济特区立法本身也会受到立法理念、立法体制、立法人员、立法技术、立法程序等诸多因素的影响，而且在立法实践中，这些方面也都需要改进。本文提出，要建立经济特区立法质量的评价标准体系，在形式标准方面要求文本规范和体系和谐，在实质标准方面则应遵循合法性标准和合理性标准。至于如何提高经济特区的立法质量，基本的包括五个方面：一要创新立法观念，二要完善立法程序，三要提高人员素质，四要提升立法技术，五要完善立法监督。最后，对经济特区立法机关的适用进行具体分析，研究其中存在的法规冲突问题及其解决路径。由于经济特区所在地的省、市有两个立法权，因而特区立法内部也存在矛盾冲突问题。解决这类冲突有两条思路：一是完善立法的监督机制。省人大在审议批准特区人大提交的法规草案时，应考虑与省政府规章的协调一致。若不能协调一致，就必须认定两者之中谁合法适当，谁不合法不适当，从而正确行使撤销权与批准权。二是改革现行立法体制中的“批准”制度。因为这种批准制度存在导致立法主体不明确和效力等级不明确的弊病，成为法规冲突的重要原因。在结束语的部分，就我国经济特区立法发展提出前瞻性的意见建议，共五条：一是特区立法要继续坚持现有立法体制和法律体系；二是要继续推进经济特区立法的民主化、科学化；三是要不断强化特区人大立法中的主导作用；四是特区立法要在选题及内容上突出“特”字；五是要加强特区立法调研，借鉴先进立法经验。
[Abstract]:It has been more than thirty years since the establishment of the special economic zones in China. The economic and social development has made remarkable achievements and has become the epitome of the successful policy of China's reform and opening to the outside world. Taking full advantage of the advantages of legislative resources and promoting social and economic reform and development by legislation, by the end of 2010, the Shenzhen Municipal People's Congress and its Standing Committee have adopted 370 items of legislation and related laws and regulations, including 243 special administrative laws and regulations. In the economic regulations of the Shenzhen special Economic Zone, about 1/3 are in the state related laws and regulations. There are about 1/3 of the necessary changes, supplementation and refinement of national laws and regulations, and about 1/3 for strengthening the administrative legal system, environmental protection, urban management and spiritual civilization construction in accordance with the economic system and the actual needs of the opening to the outside world. The situation in several of his special economic zones is also the same.
If the Special Economic Zone legislation is put into consideration of the development of the whole country's legal system, the Special Economic Zone legislation has the following characteristics: first, it is experimental, and the legislation of special economic zones is often first tried in the case of the state related legislation which has not been promulgated, and has accumulated a lot of useful experience for the construction and improvement of our country's legal system; two is the advance and the economy is special. In the legislative work, the political and social responsibility that the district assumes is to provide experience for the wider and even national legislation; three is the influence. According to its own economic and social development, the special economic zone has formulated many regulations to fill the blank of the national legislation. The greatest advantage of the special economic zone is the institutional side. The most important resource is to reform and innovate the resources, and the greatest contribution to the whole country is to explore the current way through the reform and innovation in the system construction, and be the most important policy advantage in the special economic zone, which is fundamental and fundamental to the new situation of the special economic zone. In this regard, the special economic zones should give full play to the advantages of the legislation and cut the "double legislative power". At the same time, the judicial organs should attach great importance to the legislation of the special economic zones in the judicial practice, to apply the case of the legislative referees in the special economic zones, to maintain good and to develop the advantages of the special economic zones.
This article is divided into seven chapters. In addition to the introduction of the first chapter and the end of the seventh chapter, the second chapter outlines the concept and characteristics of the Special Economic Zone legislation from the nature, course and role of the Special Economic Zone legislation, and divides the development process of the special economic zone, and then points out the status and role of the legislation of special economic zones in the whole country's legal system. The third chapter is on the seven chapters. The legislative power of the special economic zone is detailed and deeply analyzed. It combs the legal origin of the authorized and local legislative powers of the special economic zones, points out the scope and principles of their respective rights, analyzes the coordination of the dual legislative power of the special economic zones, and points out the way for its improvement. The fourth chapter examines the procedures of the current economic Special Economic Zone legislation and analyzes its procedures. In the fifth chapter, the improvement of the quality of the Special Economic Zone legislation, the current situation of assessing the quality of its legislation, the problems and causes of its legislative quality are discussed, and the countermeasures and suggestions are put forward to improve the quality of its legislation. The sixth chapter focuses on the application of the Special Economic Zone legislation, including its effectiveness and judicature. Applicable and legal conflicts and solutions.
First, the concept, nature, course and function of the Special Economic Zone legislation are systematically combed. The legislation of the Special Economic Zone in China is an important part of the whole national legislative system, the sixty-third article of the People's Republic of China legislative law, which was implemented in July, also stipulates that the city where the special economic zone is located belongs to the "big city", its size and its Standing Committee. There will be the right to formulate local laws and regulations; at the same time, the sixty-fifth article also stipulates the authority to authorize the special economic zones. In this way, the special economic zones have obtained the "double legislative power", one is the general legislative power to formulate local laws and regulations (i.e., the authority to establish the right), and the other is the authorized legislative power to formulate special economic zones. In the Special Economic Zone legislation, The parallelism of "double rights" legislation, especially the generalizations and fuzziness of the authorized legislation, has also raised many questions about the constitutionality, legitimacy and necessity of the legislation. Under the system of "double legislative power", how to coordinate the relationship between the authorized legislation and the power legislation is an important issue in the legislation of the special economic zone. In a word, the economy is an important issue. The legislation of the special economic zone has an extremely important and special position on the level of national rule of law and the reform and development of the special economic zone itself.
Secondly, it studies the configuration of the legislative power of the special economic zones, and systematically combs and summarizes the origin, characteristics, scope of authority and exercise principles of legislative powers of authorized legislative powers and powers, and puts forward the ways and methods of "coordination of double rights". There are two main aspects in this: first, the legislation of the authorized organs and the authorized organs are taught in accordance with the instruction. Is the level of the validity of the law equal or unequal? There are two theories of equality and inequality in the current theoretical circle. The reason for "equality" is the relationship between authorization and agency in law and the relationship between authorization and authorization in legislation; the theory of "inequality" is the place of authorization and authorization of the two legislative bodies. Position is different, so the rank of the law is different. Two is the power level of authorized legislation and power legislation of the authorized organ is different or equal. There are "inequality theory" and "equality theory" two. The reason of "inequality theory" is that the right of the authorized legislation belongs to the legislative power of the superior organs. As a result, the level of the effectiveness of the authorized legislation is higher than that of the legal norms formulated by the powers and powers. Therefore, the authorizing legislation can formulate the "superlattice" local regulations. The reason for the "equality theory" is that the legislative body of the two is the same, and the rank and effect rank of the law should be the same. The key is to solve the problem. The procedure setting of the conflict in the legislative organs of the special economic zones should be set up by the NPC or its Standing Committee as early as possible to make specific provisions on the rights of the Special Economic Zone legislation.
Thirdly, we should improve the procedural system of the Special Economic Zone legislation and examine the outstanding problems in it. The legislative activities include the activities to formulate, modify or abolish the law. There are many problems in the legislative programming, drafting, deliberation and voting of the special economic zone. Some are due to the lack of a certain principle in the legislative process, such as the Department. The phenomenon of the gate legislation is because in the legislative activities, the legislative body's enthusiasm and initiative are not enough, and there are also the lack of the system as a whole, such as the insufficient research and demonstration in the stage of legislative planning, draft drafting and so on. Therefore, this article puts forward that the Special Economic Zone legislation should be focused on the procedure. The following six points: one is to strengthen the leadership of the legislature and weaken the traces of the administrative leading legislation; two, to build a perfect research system and to strengthen the substantive argument in the legislation; three, to establish a unified drafting system and to improve the quality of the draft regulations; four, to further improve the hearing system and to ensure the open channel of public participation; five It is to improve the current deliberative system and improve the quality and efficiency of deliberation; six, to improve the existing voting system and promote the rational optimization of voting mechanism.
On the whole, the quality of the Special Economic Zone legislation is better. However, because of the Special Economic Zone legislation itself will also be influenced by many factors such as legislative idea, legislative system, legislature, legislative technology, legislative procedure and so on, and in the legislative practice, Some aspects also need to be improved. In this paper, we propose to establish a standard system for the evaluation of the quality of the legislation of special economic zones, to require the standard of text and the harmony of the system in the form standard, and to follow the legal standard and the standard of rationality in the substantive standard. As to how to improve the legislative quality of the special economic zone, the basic includes five aspects: 1 To innovate the concept of legislation, two, we should improve the legislative procedure, three improve the quality of personnel, four enhance the legislative technology, and five, improve the supervision of legislation.
Finally, the application of the Special Economic Zone legislature is analyzed in detail, and the existing legal conflicts and solutions are studied. Because of the province where the special economic zone is located, there are two legislative powers in the city. Therefore, there are also contradictions and conflicts in the legislation of the special economic zone. There are two ways to solve these conflicts: one is to improve the supervision mechanism of the legislation. When examining and approving the draft regulations submitted by the people's Congress of the special economic zone, the provincial people's Congress should consider the coordination with the provincial government rules and regulations. If not harmonized, it is necessary to determine who is legal and appropriate, who is not legal and inappropriate, so that the right to revocation and approval should be exercised correctly. Two is the "approval" system in the reform of the current legislative system. The existence of the approval system leads to the fact that the main body of legislation is not clear and the level of effectiveness is not clear.
In the part of the concluding remarks, there are five forward and forward suggestions on the development of the Special Economic Zone legislation in China. One is that the legislation of the special economic zone should continue to adhere to the existing legislative system and the legal system; the two is to continue to promote the democratization and scientification of the Special Economic Zone legislation; and the three is to strengthen the leading role of the legislature of the people's Congress of the special economic zone; four The legislation of the special zone should highlight the word "special" in the topics and contents. Five, we should strengthen the research on the legislation of the Special Administrative Region and learn from the advanced legislative experience.
【学位授予单位】：吉林大学
【学位级别】：博士
【学位授予年份】：2012
【分类号】：D920.0

【引证文献】