摘要
法国和日本对地方合作有较为丰富的立法,地方可基于自治组织权依法设置共设机关。我国地方具有自主权,尽管地方自主权还缺乏"防御权"特征,但仍具有自主组织权,可依法设置机构并制定组织细则。跨行政区共设机关的创设,应该全面贯彻法律保留和法律优先原则,都由法律加以规定。地方立法无权创设跨行政区共设机关,但可以针对已经获得批准设立的跨行政区共设机关制定具体规则。我国应该完善组织立法,允许县级以上地方人民政府根据需要共同设置跨行政区部门性行政机关或派出机关。应该健全机构设置程序,具体规定跨行政区共设机关的设置主体,确立它在组建和运行中的平等规则和民意基础。跨行政区共设机关应以其管辖事务的性质和地位适用法律,原则上在合作方的辖区内都享有管辖权,至于具体的事务和地域管辖范围既取决于共设机关实现任务的需要,又取决于合作方的约定。跨行政区共设机关一旦行使管辖权,合作方相同事务的行政机关应立即移交而不能继续行使原有的管辖权。它的有效运行还取决于合作方地方性法规和规章的协调一致。
France and Japan have adopted numerous laws on local cooperation,according to which local governments can set up joint agencies based on autonomous association.In China,local governments also have autonomous right.Although this right in China lacks the character of“defense”,it still covers association,which means local governments can set up agencies according to law and enact organizational rules for them.The establishment of inter-jurisdictional joint agencies should be in full compliance of the principles of law reservation and law priority and be prescribed by laws made by the National People’s Congress.Local legislation may not establish any inter-jurisdictional joint agency,but it can make detailed rules on the approved ones.China needs to improve organizational legislation and permit local governments at or above the county level to jointly set up inter-jurisdictional departmental agencies or field agencies as needed.China also needs to improve the agency setup procedures,specifically provide for the subjects with the authority to set up inter-jurisdictional joint agencies,and establish the equality rule and the public opinion foundation for the formation and operation of joint agencies.An inter-jurisdictional joint agency shall apply laws according to the nature and status of the jurisdictional affairs.In principle,it has jurisdiction in the administrative areas of all its partners.As for concrete affairs and the limit of regional jurisdiction,they depend on the needs of the task to be performed as well as the agreement among partners.Once an inter-jurisdictional joint agency exercises its jurisdiction,agencies that are responsible for the same affairs within the administrative areas of the partners shall immediately transfer,rather than keep exercising,the jurisdiction.In addition,the effective operation of this system also depends on the coordination of local rules and regulations among all the partners.
出处
《环球法律评论》
CSSCI
北大核心
2020年第6期23-39,共17页
Global Law Review
基金
作者主持的2019年度全国人大常委会法工委委托课题“长三角区域一体化发展战略的法治保障与立法协同”(ZBDX2019110040)的研究成果。
