中國城市立法的實踐演變與理論爭鳴

The Evolution of Practice and Theoretical Debates of Urban Legislation in China

從改革開放之初的較大的市立法到如今的所有設區的市立法，我國城市立法30多年走過了一條複雜而曲折的探索之路。較大的市的產生、發展／停滯、重啟／擴大都有著深刻的歷史背景與時代需求，這些背景和需求構成了城市立法從無到有、從少到多的內在邏輯。修改後的《立法法》將擁有立法權的城市擴大到所有設區的市和自治州也是遵循了這樣的內在邏輯：即城市發展過程中需要通過立法的方式輔助全面深化城市改革、促進城市經濟轉型、推動地方發展、化解轉型過程中日益增多的矛盾。設區的市擁有立法權，有助於改變原有不均衡的立法權分配格局，形成全面、均衡的三級立法體制，以立法方式約束地方執政者的恣意，使之由管理型向服務型、壓制型向回應型、維穩型向法治型轉變，並為實現人大及其常設機關的民主性、人民性和充分的代表性提供了堅實的基礎。誠然，剛剛上路的設區的市立法必然會面對各種爭議：法制統一難以實現、立法質量難以保證；地方保護難以避免。但這些問題恰恰需要通過設區的市在立法實踐中儘量修正與避免：賦予城市立法權有利於整頓地方法治秩序，可以促進法治隊伍建設，培養法治思維，剌激違憲審查制度生長。

From the beginning of the larger city legislation to the legislation of the cities with subordinate districts, the path of urban legislation in our country is very complex and tortuous in the past thirty years. The emergence, development, stagnation, restart and expansion of large cities have historical backgrounds. These backgrounds constitute the inner logic of urban legislation. Legislation Law grants all the cities with subordinate districts legislative power. Urbanization and economic transformation need legislatures of the cities to change the system of legislation. And it can also transform the way of management. We have to say that urban legislation has many problems, but the solution is just in legislation itself. Urban legislation can rectify the local law and order, promote the team construction of legal professional, cultivate legal thinking training and stimulate the growth of constitutional review system.