地方立法適用中的上位法依賴與實用性考量

Upper Laws Dependence and Practicability Consideration

實踐表明，我國的地方立法並沒有架空上位法，反而處於被邊緣化的尷尬境地。地方立法被棄用的原因主要包括適用地域性和審級制度下的風險規避、地方立法制度功能缺失以及傳播成本和規則認知便宜化等三個方面，表現出了法律適用中的“上位法依賴”傾向。但與此同時，仍然有部分地方立法規範在實踐中較為活躍。通過對這些立法文件所涉司法案件的抽樣分析，可以發現適用較活躍的立法條文可被歸入解釋或充實上位法概念、設定地方性標準、確認行政主體地位、確定行政處罰或強制行為、規定當事人權利義務、填補上位法漏洞等情形之中，進而分為細化操作型、賦權確認型和漏洞填補型三類，體現了法律適用中的“實用性考量”。結合正反兩方面的經驗，要使地方立法具有更強的實效性，則應做到根據需求實施立法供給、強化規範的確定性、有效平衡“安全立法”和“有用立法”的關係並降低立法的傳播與學習成本。

Legal practice shows that China's local legislations fail to substitute upper laws, instead, they are in an embarrassing situation of being marginalized. According to interviews with law enforcement officials and judges, the reasons why local legislations are abandoned include three aspects of factors, which demonstrate the tendency of 'upper laws dependence': 1) risk aversion under the regional application of local legislations and levels of trial in court system; 2) function defects of local law-making system; and 3) communication cost and oversimplified understanding of legislations. Meanwhile, some other local rules are quite active in practice. After sampling analysis of cases which contain those rules , we can find that the active local legislations can be ascribed into categories such as interpreting upper law concepts , setting local criteria, confirming the legal status of administrative bodies , clarifying administrative penalty or administrative coercion , providing rights and obligations of interested parties and filling legal loopholes. These categories can be further summarized into three types as 'specification and operation type', 'empowerment and confirmation type' and 'loopholes filling type', which demonstrate 'consideration of practicability' in application of law. According to experiences on both sides of a coin, to make local legislations more effective, the following need to be done: 1 ) supplying legislation based on requirement; 2 ) strengthening the certainty of rules; 3 ) balancing 'safe legislation' with 'useful legislation' ; and 4 ) bringing down the cost of communicating or learning new laws.