論地方立法權限和範圍──兼評溫州市地方立法立項

On the Scope and Authority of Local Legislation － and on Project Establishment of Local Legislation of Wenzhou City

《立法法》規定設區的市可以就城鄉建設與管理、環境保護、歷史文化保護等方面的事項分別制定地方性法規和規章。由於《立法法》對設區的市地方立法權限和範圍的高度概括和抽象，造成了地方立法立項應然與實然範疇上的嚴重分歧。地方立法立項的實踐表明，地方立法權限和範圍的實然推論獲得了普遍認同和容許。因此，有必要對地方立法權限和範圍的學理推論向更為寬泛的方向進行修正，按政府職能角度建構適應地方立法實際需要的推論結論。以溫州市地方立法立項為例，地方立法立項應當在實然語境下建立起人大主導、政府從屬和社會參與的基本格局，以現實的、歷史的和比照的方法，探索形成有特色的地方立法項目庫。

Legislation Law provides that districted cities can enact local decrees and rules for matters of urban and rural construction and management, environmental protection, and historical and cultural protection. Since the provision on the scope and authority of local legislation in Legislation Law are too general and abstract, there are serious differences between the ideal and actual spectrum of items belongs to local legislation. The practice of project establishment of local legislation shows that the actual scope and authority of local legislation is universally recognized and allowed. It is necessary to revise the theoretical justification on the scope and authority of local legislation, and make conclusions according to the functions of the government to meet the practical needs of local legislation. As for the local legislation of Wenzhou City, a basic pattern of decision-making on project establishment of local legislation should be established, in which the people's congress is a dominant player, the government is a subordinate player and the public are participatory players; and a project pool of local legislation with local features should be explored and set up.