【作者】 吴琼；

【导师】 任喜荣；

【作者基本信息】 吉林大学 ， 法律硕士（专业学位）， 2024， 硕士

【摘要】 自1992年深圳获得经济特区立法权至今已过三十春秋,三十多年来,深圳经济特区根据全国人大授权通过行使立法变通权优化了深圳的营商环境,为深圳的内外资投入提供了法制保障,在促进深圳经济高速发展的同时也为国家立法积累了经验。然而在实践中,因全国人大常委会对深圳特区的立法变通授权决定采取了“一揽子”授权模式,使立法变通权的权限范围不甚明了,致使深圳特区一些立法变通备受争议,且理论界关于经济特区立法变通的存废亦争辩不休,深圳特区立法变通权的行使一直面临挑战。2019年8月9日,中央发布了《关于支持深圳建设中国特色社会主义先行示范区的意见》(以下简称《意见》),《意见》强调深圳要用足用好经济特区立法变通权,该政策的出台一方面表明中央肯定了深圳特区通过立法变通为当地乃至全国经济做出的贡献,另一方面也侧面说明了深圳特区立法变通权在实践中存在不足之处。2019年2月18日,中共中央、国务院公开发布《粤港澳大湾区发展规划纲要》,开启了全面推进粤港澳大湾区建设的新篇章。2021年9月6日,中共中央、国务院印发《全面深化前海深港现代服务业合作区改革开放方案》,该方案明确了深圳前海合作区发展新方向,提出我国要在深圳前海合作区建立粤港澳大湾区全面深化改革创新试验平台、深圳前海也将成为我国高水平对外开放门户枢纽。深圳作为粤港澳大湾区的重要城市,前海作为深圳重要的开发区,足以见得在新时期的全面深化改革中,中央对深圳行使立法变通权的期待和要求都有所提高。通过梳理深圳经济特区的立法变通实践可知,在过去的几十年里,深圳是中央所设经济特区中行使经济特区立法变通权最多的经济特区,具备良好的立法变通基础。在建设先行示范区的《意见》中,中央明确提出深圳特区在新时期要继续用足用好立法变通权,用足用好则意味着深圳在建设先行示范区的过程中行使立法变通权要同时兼顾“用足”与“用好”。在深圳经济特区立法变通权实践中,深圳通过立法变通权缓和了经济发展中地方存在的法律供需矛盾,在一定程度上协调了央地间的立法关系并促进了我国的法律演进。不过,深圳在立法变通的实践中也存在超出立法变通限度导致违法违宪,尤其曾发生过立法变通“良性违宪”;过度立法变通破坏法制统一,将法律视为解决问题的万能手段;立法变通中存在具有部门利益倾向的法规条款损害公众利益的风险与不足。为了缓解深圳立法变通中存在的风险与不足,达到《意见》中对深圳立法变通权提出的新要求,首先要完善批量清单授权制度,明确授权事项及范围以防深圳在全方位的示范中产生违宪问题;其次要强化深圳人大在立法变通中的主导地位,在新时期新要求下继续提升人大立法工作队伍的质量进而提高立法变通的质量,全国人大继续落实备案审查制度对深圳立法变通的情况进行把控;最后推进深圳与粤港澳大湾区其他城市协同立法,以粤港澳大湾区的建设反哺深圳先行示范区的建设,并且在区域立法协作中避免具有部门利益倾向的条款。通过以上对策,希望能对深圳立法变通权的行使进行更严格的规制,以期充分发挥深圳在社会主义现代化建设中的示范先行作用。更多还原

【Abstract】 Since 1992,Shenzhen has been granted the legislative power of special economic zones for thirty years.Over the past thirty years,the Shenzhen Special Economic Zone has optimized the business environment in Shenzhen through the exercise of the right of legislative adaptation under the authorization of the National People’s Congress(NPC),provided legal protection for domestic and foreign capital investment in Shenzhen,and accumulated experience in promoting the rapid development of Shenzhen’s economy as well as for the national legislation.However,in practice,because the Standing Committee of the National People’s Congress(NPCSC)has adopted a "blanket" authorization model for the authorization of legislative changes in the Shenzhen Special Administrative Region(SZSAR),the scope of authority of the right of legislative changes is not clear,resulting in some legislative changes in the SZSAR being subjected to controversy,and theoretical debates on the retention or abolition of legislative changes in the SZSAR,the exercise of the right of legislative changes in the SZSAR has been faced with challenges.On August 9,2019,the Central Government issued Opinions on Supporting Shenzhen to Build a Model District of Socialism with Chinese Characteristics(hereinafter referred to as "Opinions"),which emphasized that Shenzhen should make full use of the legislative accommodating power in the Special Economic Zone,and the introduction of this policy shows that the Central Government has affirmed that the Shenzhen Special Administrative Region has contributed to the local and even the national economy through legislative adaptation.On the other hand,it also side-steps the inadequacies of the Shenzhen Special Economic Zone’s right of legislative adaptation in practice.On February 18,2019,the Central Committee of the Communist Party of China(CPC)and the State Council publicly released the "Outline of the Plan for the Development of the Guangdong-Hong Kong-Macao Greater Bay Area",which opens a new chapter in the comprehensive advancement of the construction of the Guangdong-Hong Kong-Macao Greater Bay Area.On September 6,2021,the Central Committee of the Communist Party of China(CPC)and the State Council issued the "Scheme for Comprehensively Deepening the Modern Service Industry Cooperation Zone Reform and Opening-up Program",which clarifies the new direction of the development of Shenzhen Qianhai Cooperation Zone,and proposes that China will establish a Guangdong-Hong Kong-Macao Greater Bay Area comprehensive deepening reform and innovation test platform in Shenzhen Qianhai Cooperation Zone,and make Shenzhen Qianhai a high-level open-door gateway hub to the outside world.Shenzhen,as an important city in the Guangdong-Hong Kong-Macao Greater Bay Area,and Qianhai,as an important development zone in Shenzhen,is enough to show that in the new period of comprehensive deepening reform,the central government’s expectations and requirements for Shenzhen to exercise its legislative adaptability have been raised.By combing through the practice of legislative adaptation in Shenzhen Special Economic Zone,it can be seen that in the past decades,Shenzhen is the Special Economic Zone established by the Central Authorities which exercise the right to adopt the legislation of the Special Economic Zone is the most numerous,with a good foundation of legislative adaptation,in the Opinions on the Construction of Pioneer Demonstration Zones,the Central Authorities explicitly put forward that Shenzhen Special Economic Zone should continue to use the right to adopt the legislation of the Special Economic Zone to its fullest extent in the new period.In the process of constructing an advanced demonstration zone,the exercise of the legislative accommodating power should take into account both "full" and "good" use.In the practice of Shenzhen Special Economic Zone’s right to change legislation,Shenzhen has eased the contradiction between the supply and demand of local laws in economic development through the right to change legislation,and to a certain extent coordinated the legislative relationship between the central and local governments and promoted the evolution of China’s laws,however,there are cases of exceeding the limit of the right to change legislation leading to violation of the law and the constitution in the practice of changing legislation,especially there have been cases of "benign unconstitutionality";excessive legislative changes to undermine the unity of the rule of law,the law as a panacea for the problem;legislative changes in the existence of sectoral interests tend to damage the public interest in the statutory provisions of the risk and shortcomings.To alleviate the risks and shortcomings of the Shenzhen legislative changes to meet the "Opinions" of the Shenzhen legislative changes to the right to put forward the new requirements,firstly,the batch list authorization system should be improved,and the authorization matters and scope of the authorization should be clarified,to prevent unconstitutional problems from arising from Shenzhen’s all-round demonstration.Secondly,to strengthen the Shenzhen people’s congress in the legislation of the leading position,in the new period of new requirements continue to improve the quality of the legislative workforce of the people’s congress to improve the quality of the legislation of the change,the national people’s congress to continue to implement the filing system of the review of the Shenzhen legislation of the change in the situation of the control;Finally,Shenzhen should collaborate with other cities in the Guangdong-Hong Kong-Macao Greater Bay Area to enact legislation,which can feed the construction of Shenzhen’s pilot demonstration area,and provisions with sectoral interests can be circumvented in the collaboration of regional legislation.Through the above countermeasures,it is hoped that the exercise of Shenzhen’s legislative variation power can be more strictly regulated,to give full play to Shenzhen’s role as an exemplary pioneer in the construction of socialist modernization.更多还原