【作者】 薛洁；

【导师】 上官丕亮；

【作者基本信息】 苏州大学 ， 宪法学与行政法学， 2022， 博士

【摘要】 任何一项宪法制度都具有严密的逻辑结构,市制的宪法逻辑可从市制的宪法依据、法理基础及其实践运行的宪法审视进行探寻,他们分别从“是什么”,“为什么”,“怎么办”的角度揭示了市制的存在形式,市制的功能、特点,市制的规范内涵及其应然展开路径。市制以“市”为起点,新中国成立之后,“市”在宪法上经历一个曲折上升的过程,通过历次的宪法修改,市制的内容渐趋完整。八二宪法把建制市主要分为三种类型,分别是“直辖市”、“较大的市”和“市”。“直辖市”由中央直接管辖,在地位与层级上较其他市具有优越性。《宪法》第30条第2款中的“较大的市”与“设区的市”是对同一地域不同维度的描述,二者指向同一对象。“较大的市”通过体系解释下的逻辑勾连,应为省辖市中的个例情形,而《宪法》第30条第1款第2项的“市”是较大的市与省辖的一般的市的上位概念。宪法上的市制具体可细分为三项内容,分别是以《宪法》第62条第13项和第89条第15项为具象的市的建置制度,以《宪法》第100条第2款为代表的市的权限制度,以《宪法》第30条为内容的市的行政管理体制。在市的建置制度上,宪法以“隔级批准”的方式确立了以中央决策机关为主的建制市审批主体,目的在于形成自上而下的垂直管理,市的建置制度在内容上具体包括市的设立、市的撤销、市的变更以及市的区域划分。市的权限制度是市制区别于其他地方制度的内核,只有法定权力才能成为地方一级政权的组织基础,宪法是建制市权力配置的根本依据。市的行政管理体制则重在解决建制市纵向的层级与管辖关系问题,在市与上下级发生勾连的过程中,建制市的地位和行政级别得以显现。市制之所以需要纳入宪法的规范体系,首先在于市制是国家结构形式在地方架构上的投影。建制市作为政治地域单元,我国国家结构形式中的主权权力归属以及整体和部分、上级与下级的关系就隐喻在对市制具体的制度设计和权力分配中。此外,市制的具体实施也是民主集中制原则发挥的渠道。在宪法的区域构成单元中划分出市,并在市域内设立地方国家权力机关处理地方事务,能够更贴近民众的诉求,反映城市居民的诉愿,彰显人民当家作主的宪法基本原则。同时,建制市的设立还是民主集中制在央地关系上“民主”与“集中”的统合,民主集中制下地方积极性的发挥和中央的统一领导在市的有限分权和层级架构中得以体现。此外,宪法对市制进行规范还因为市制具有区别于其他建制的特殊性和不可替代性,市制所包含的“市场”与“经济”之意涵承载着保持市场活力,促进经济发展的任务。最后,市制写入宪法是依宪治国的内在要求,“依宪治国”是“依法治市”的高阶版,借助宪法上的制度性保障理论市制将获得更强力的权威和更具实效性的保护。就市制的运行现状来看,自新中国成立以来,市建置制度于实践中经历了初创、加速、调整、优化的阶段。在这个过程中,建制市的数量虽然有所起伏,但设市模式和城市类型不断丰富,市的行政地域面积持续扩大,涉及市的变更调整行为愈加频繁。与此同时,国家对较大的市、设区的市、计划单列市下放了更大范围的立法权、经济管理权以及相当于省级政府的国民经济和社会发展权,极大地激发了大中城市的职能发挥空间。在行政管理体制上,市的行政等级不断丰富和细化,共有七级之多。改革开放后,市管县逐步成为占据主导地位的管辖模式,近年来,出于提高行政效率,节约行政成本的考虑,越来越多的省份开始尝试省直管县。然而,实践的多样性导致市制在一些方面偏离了宪法轨道。市建置制度实施中国家权力行使不尽规范,国家机关在设市时缺乏对建制市本质属性的考量,致使市的广域化、政府职能的混同化问题频发。地方政府不经形式要件自行设村级市和镇级市的行为混淆了“市”的符号性建制和行政性建制。而且,以行政命令为主导的建制市变更程序忽视了地方权力机关的民主议决权。在建制市的权力配置上,计划单列市的行政性大于法治性。此外,国务院批准较大的市拥有立法权的规定还面临着无宪法依据的窘境,而2015年《立法法》对设区的市立法权下放的修改虽然弥合了立法权意义上和行政区划意义上较大的市外延不同之问题,但因坐实地级市以及用实践涵摄规范导致此种以立法发展宪法的方式存在着宪法漏洞。在市与上下级的行政管理体制上,副省级市和副地级市是溢出宪法区划层级的产物,同时,宪法规范中的较大的市不等于地级市,地级市在我国不应成为一级政权组织,地级市管县是对宪定结构框架之内管辖关系的违背。针对上述问题,未来市制的优化必须依据其宪法基础和宪法定位展开,制度的各项要素建构应符合宪法内在的逻辑。具体来说,应着力构建科学而完备的市建置制度体系,重视地方权力机关在行政区划调整中的作用发挥,实施市建制变更的比例原则论证,重新回归建制市的城市型政区特质。同时,赋予建制市更多的地方自主权,回归设区的市报批准之监督属性,下放立法权至不设区的市和县,根据地方发展的情况,对具有重要地位的大城市以法治化的方式实施行政扩权。在市的行政管理体制改革上,则要淡化行政等级意识,厘清市的职权分工,由市管县逐步过渡到省管县,并可以考虑在时机成熟时实施县下辖市的城市管理体制。更多还原

【Abstract】 Every constitutional system is composed of strict logical structure.The constitutional logic of the municipal system can be explored from its constitutional ground,legal basis and constitutional review of practical operation,which respectively revealed the existence form,function and characteristic,normative implication and proper development path of the municipal system from the perspective of "what","why" and "how to do".The municipal system takes "municipal" as the starting point,after the founding of New China,the municipal has experienced a tortuous ascent in the constitution,through successive constitutional amendments,the content of the municipal system gradually becomes complete.In the Constitution of 1982,there are three types of cities,"province-level municipality","lager city","municipal","province-level municipality" is supervised by central government,which has superior level and status over other city."lager city" and"municipality with district" in Article 30 Paragraph 2 on Constitution pointing to the same object,they are the same area from different perspective.Under logical linkage of system interpretation,we can figure out the "lager city" is individual municipality that is controlled by a provincial government."Municipality" in the Article 30 Paragraph 1 Subparagraph 2 is the common concept of "larger city" and general city.The municipal system in the Constitution is divided into three parts,the first is municipal institutional system which is specified in the Article 62 Subparagraph 13 and Article 89 Subparagraph 15,the second is municipal authority system which is stipulated in Article 100 Paragraph 2,and the third is municipal administrative system which embodied in the Article 30 in Constitution.As for municipal institutional system,the constitution stipulates the central government as the main body of examination with "interval approval"method in order to form a top-down vertical management.Municipal institutional system includes the establishment,revoke,alternation and regional division of a city.The authority system is the main core that distinguishes the municipal system from other local systems.Only legal power can be used as organizational basis of local political power,and the constitution is the fundamental basis for the allocation of power in municipality.The municipal administrative system focuses on solving the problem of vertical hierarchy and jurisdiction of the municipality,and in the superior and subordinate level,the status and administrative level of established cities have been revealed.The reason municipal system should be incorporated into the normative system of the Constitution first is that the municipal system is the reflection of the form of the state structure on local.As the basic unit of political area,the ownership of sovereign power,the relationship between the integral and partial,superior and subordinate in the form of national structure is hidden in the designation and power distribution of the municipal system.Besides,the concrete operation of the municipal system is also a channel through that the principle of democratic centralism is brought into play.Adding the municipality into the regional unit of the constitution,and set up local state authority to handle local affairs,which will close to the demands of the people,reflect the wishes of urban residents and express the basic principle of the constitution that people are the masters of the country.Besides,the establishment of an organic municipality is also the integration of "democracy" and"concentration" in the aspect of democratic centralism in central and local relations,and local enthusiasm and the unified leadership of the central government can be founded in the limited municipal powers and hierarchical structure.Furthermore,the municipal system is regulated in Constitution because of its special and irreplaceable character that makes it different from other organizational systems.The meaning of the "market" and "economy"of the municipal system bears the task of maintaining the vitality of market and promoting the economic development.Finally,the inclusion of the municipal system in the constitution is an inherent requirement of constitution-based governance,and "constitution-based governance" is an advanced version compared to "law-based governance" with the help of the constitutional theory on institutional guarantee,the municipal system will obtain stronger authority and more effective protection.In terms of the operation status of municipal system,the municipal institutional system has experienced the stages of start-up,acceleration,adjustment and optimization in practice since 1949.In this process,although the number fluctuates,the municipal establishment model and types continue to be enriched,administrative boundaries maintain to be extended,and adjustment involving the city are more frequent.Besides,for lager city,municipality with district and city specifically designated in the state plan,there granted legislative power,economic management power and provincial-level national economic and social development powers,and these measures have greatly stimulated the space for the function of large and medium cities.As for the administrative management system,the administrative hierarchy of municipality has been continuously enriched even up to seven levels.City governing the county gradually become a dominant jurisdiction after the reform and opening up,in recent years,based on improving administrative efficiency and saving administrative costs,more provinces are beginning to province governing county.However,the diversity of practice leads to the deviation of the municipal system from the constitution in certain aspects.The public power is not standardized in the process of municipal institutional system implementation,because the government office doesn’t take the urban essential attribute into account,as a result,the problems of municipal wide-area and confusion of government functions have frequently occurred.Local governments set up village-level cities and town-level cities without the formal requirement,confusing the organizational structure between symbol city and administrative city.Moreover,the institutional change led by administrative orders ignore the autonomous management power of local authorities.Meanwhile,in the municipal power allocation,the administrative nature of cities specifically designated in the state plan beyond its legal nature.Moreover,lager city approved by the State Council is authorized legislative power facing up the dilemma that is lack of constitutional basis,although Amendments of Legislation Law in 2015 delegating the legislative power to municipality with district bridges the different extension of the lager city in the sense of legislative power and administrative division,there are still constitutional loopholes by way of developing the Constitution with legislation in consider of certificating prefecture level city and subsuming legal norms into practice.As for municipal administrative system,sub-provincial city and sub-prefecture-level city are the products that overflow the constitutional administrative division.Moreover,the larger city in the constitutional provisions is different form prefecture level city,and prefecture level cities shouldn’t play the role as a regime organization,and prefecture level cities governing counties is a violation of the jurisdictional relationship within the framework of the constitutional structure.Aiming at above problems,the optimization of the municipal system should base on its constitutional basis and position,and the construction of elements of the system should conform to the internal logic of the constitution.Specifically,we should focus on building a scientific and completed municipal institutional system,paying attention to the role of local authority in the regional adjustment,and demonstrating the principle of proportionality for organizational change in order to return to the urban attribute of municipality.Besides,the municipality should be given more power with the help of the approval procedure regressing to the meaning of supervision in municipality with district,and releasing legislative power to municipality without district and county,in addition,according to local development conditions,large cities with important position should be extended administrative powers in a legal way.As for municipal administrative system,it’s necessary to dilute the awareness of administrative hierarchy,clarify the division of powers of the municipality,and gradually transform the city governing county to province governing county,also,we can consider the mode of county governing city when the time is ripe.更多还原