从“一国两制”看中央与地方关系法治化

发布时间：2018-05-09 16:55

本文选题：国两制 + 中央与地方关系　；参考：《河北师范大学》2011年硕士论文

【摘要】：无论是在古代国家还是在现代国家,也无论是在单一制还是在联邦制国家,中央与地方关系的处理都是国之要务。其关系的实质是二者之间权力、责任的分配。从历史角度看,中央与地方权力关系处理得好,经济社会因两级权力分工明确、守土有责得以持续发展;处理不好,先不论经济有大起大落的风险,即使是国家统一和社会长治久安也可能无法确保。现代国家以法治的方法对政府权力进行严格规训。中央与地方关系博弈中,两者关系处理的法治化,也就是权力分配的法治化问题随之显现。具体而言,在行政、立法、司法等领域厘清中央与地方关系至关重要。上述关系的定位是否合理,必将长久制约双方的政治活动。这在体量巨大、地区差异明显的单一制国家中尤为迫切。中国就是这样的地域宽广、人口众多、资源不均的超大型单一制国家。 “一国两制”制度,对我国处理新形势下的中央与地方关系提供了宝贵的经验。早在“回归”之前,中央与特别行政区的权力关系就纳入了法治化轨道。两者关系的处理机制基本敲定后,相关议题的协商讨论公开透明化,不因任何事、任何人而受到干扰。首先,特别行政区握有的高度自治权力来源是明确的——权力基于中央授权而获得。特别行政区与我国其他普通行政区在权力来源这一点上是一样的,区别只在于权力种类和数量的多寡。特别行政区虽享有较大程度的自治权,但其自治权力不是本身固有的,更没有将权力让渡给中央。这符合单一制国家的基本特征。相似的权力基础成为采取不同制度的行政区之间相互参照借鉴的基础。其次,在行政权上,特别行政区“回归”之前的行政主导制得以延续。特别行政区在基本法起草过程中,有人提出按西方三权分立模式搭建特区的治理框架。但这一提议最终被否决。特区政治体制最终定为“行政主导制”。“行政主导制”下的权力配置中,行政机构享有极大的权力。行政区首脑在特区整体运作中居于首要地位,肩负区领导人和区政府首长的双重职责。需要指出的是,香港、澳门的行政主导不是说行政权是无限的,而是受到多重约束的。再次,在立法权上,特区立法机构独立享有法律制定权。在与宪法和基本法不发生冲突的情况下,立法机构可以自行制定只在本行政区内施行的法律。从“回归”以来的若干影响深远的案例看,特区的立法权对行政权形成了强有力的制约。最后,特别行政区的司法权是高度独立的,最高司法机构则享有终审权。在法治国家,司法机关的作用是最为特殊的。因居于中立地位,司法机关作出的判决是有公信力的。相关各方往往寻求法院定纷止争。所有的诉讼都由法院依法进行裁决,即便是中央和地方政府之间发生诉讼也不例外。不能忽略的是,自两个特别行政区在其依法治运行的过程中时有摩擦和争议。上述摩擦、争议不能简单以对错区分,它们反映的是不同主体对“一国两制”、基本法的理解不同。摩擦、争议不但没有动摇“一国两制”的基础,相反却使得中央和特区逐步摸索各自权力边界,从而完善相应争议的解决机制。 “一国两制”制度实施十几年来的现实表明,法治化的手段使得中央与特区之间集权与分权相结合,这既维护中央权威又给予特区充分的自治权。区域性的宪政安排大大提升了特区的经济、社会、民主化发展水平。特别行政区所涉的上述权力分配格局,对全国范围内的中央与地方关系的处理颇具借鉴意义。
[Abstract]:Whether in ancient countries or in modern countries , the processing of central and local relations is the priority of the State . The essence of the relationship is the distribution of power and responsibility . From the historical perspective , the relationship between the central and local authorities is well handled , and the economic and social relations are well handled in a two - level division of power .

With the rule of law , the modern state strictly regulates the government ' s power . In the game of central and local relations , the law of the relationship between the two countries is very important . In particular , it is very urgent to clarify the relationship between the central and the local relations in the fields of administration , legislation , justice and so on .

The system of " one country , two systems " has provided valuable experience to the central and local relations under the new situation . Before the " return " , the power relations between the central and the special administrative regions have been incorporated into the law governing track . After the processing mechanism of the two relations is basically finalized , the consultation discussion on the related topics is open and transparent , and no one is disturbed by any matter .

First of all , the source of the high degree of autonomy of the Special Administrative Region is clear : the power is obtained based on the central authority . The special administrative region is the same as that of other ordinary administrative regions of our country in the power source . The difference lies only in the number of powers and the quantity of power . The special administrative region enjoys a greater degree of autonomy , but its autonomy is not inherent in itself , and it does not transfer power to the center . This is in line with the basic characteristics of the single country . The similar power base becomes the basis for reference for reference between the administrative regions of different systems .

Secondly , in the administrative right , the administrative control system before the " return " of the Special Administrative Region is extended . In the process of the drafting of the Basic Law , the Special Administrative Region has proposed the establishment of the governance framework of the Special Administrative Region according to the three separate modes of Western powers . However , this proposal is ultimately rejected . The political system of the HKSAR is ultimately the " administrative dominant system " . The administrative authority of the SAR in the whole operation of the Special Administrative Region is a dual duty of the head of the district and the government . It should be noted that the administration of Hong Kong and Macao is not to say that the administrative right is unlimited , but is subject to multiple constraints .

Thirdly , in the absence of a conflict between the Constitution and the Basic Law , the legislature may enact legislation that is only in force in the region . In the case of a number of far - reaching cases since the " return " , the legislative power of the HKSAR has a strong constraint on the executive power .

Finally , the judicial power of the Special Administrative Region is highly independent and the supreme judicial body has the ultimate right . In the country of law of law , the role of the judiciary is the most special . In the country of the rule of law , the judiciary has the most special role .

It is not easy to ignore that there are friction and dispute between the two Special Administrative Regions when they run in accordance with the law . The above - mentioned friction and disputes cannot simply be distinguished by mistake . They reflect the different understanding of the basic law of " one country , two systems " and the basic law . However , the dispute not only does not shake the foundation of " one country , two systems " , but instead makes the central and special zones gradually grope the respective power boundary so as to perfect the settlement mechanism of the corresponding dispute .

The practice of " one country , two systems " system has shown that the means of legalization combine the centralization and decentralization between the central authority and the special zone , which not only maintains the central authority but also gives the special zone full autonomy . The regional constitutional arrangement greatly improves the economic , social and democratic development level of the SAR . The above - mentioned power distribution pattern in the special administrative region has great significance for the treatment of the central and local relations within the country .

【学位授予单位】：河北师范大学
【学位级别】：硕士
【学位授予年份】：2011
【分类号】：D920.0

【参考文献】