论民族自治地方立法变通权及其运用

民族自治地方立法变通权是自治权中的重要内容,是民族自治法规立法的灵魂。本文比较全面地分析了民族自治地方立法变通权的基本理论,阐述了其基本性质、价值、原则和主要内容。最后就进一步用好民族自治地方立法变通权力,推进民族自治地方立法变通,加强民族自治地方立法提出了具体的设想。     

我国民族自治地方立法若干问题新探

本文探讨了有关我国民族自治地方立法的三个重要问题,即:自治法规的报批;单行条例与地方性法规的关系;变通、补充规定的定位。着重指出:在赋予民族自治地方人大常委会以自治法规的制定权的基础上,改自治法规的报批制为备案制,是完善民族自治地方立法体制的需要;理顺单行条例与地方性法规的关系,有助于民族自治地方立法的均衡发展;取消变通、补充规定这种立法形式,突出和强化自治条例和单行条例的作用,有利于实现民族自治地方立法的规范化、简约化和科学化。     

民族区域自治地方法律变通的价值蕴涵

民族自治地方可以依照当地民族的政治、经济和文化特点,对法律和行政法规的规定作出变通规定,变通立法是民族自治地方自治权的重要表现形式。法律变通是对少数民族人权的特殊保护,是民族平等权的有效保障。法律变通能够巩固民族认同基础上的国家认同,有效推动政治发展,促进政治文明和法治建设,实现差异性的统一,促进社会和谐。     

立法法对促进民族自治地方法制建设的作用

在我国宪法和民族区域自治法中规定了民族自冶地方人民代表大会根据法律规定,依照当地民族的政治、经济和文化的待点,制定自治条例和单行条例;根据法律规定和授权．自治地方权力机关可结合实际变通上级国家机关的决议、决定、命令和指示。对于法律中不适合自治地方实际的规定,制定变通规定或补充规定。由于立法的不足,造成实际上无法操作和无法可依。特别是在民族自治地方对法律法规的变通权限、自治法规的批准生效、公布、备案和审查撤销等方面问题突出。立法法的须布实施对上述等问题进行了明确的规范,这对促进民族自治地方的法制建设将起到巨大的推动作用。     

加强自治条例修改工作的必要性与对策研究

自治条例是民族自治地方贯彻实施民族区域自治法,妥善处理自治地方内部的民族关系、维护民族平等的重要保障。但是,由于立法工作者能力不足、立法理论缺失和法律规定不明确等因素的制约,导致自治条例存在对不能变通的法律规定做出变通,违背法律平等要求对法律规定进行细化,超越法定权限为上级国家机关设定义务,脱离实际需要简单复制上位法规定等违背宪法及其相关法要求的问题。为此,应从加强立法队伍建设和立法理论研究,对?宪法?和?民族区域自治法?的有关规定进行必要的解释和修改等几个方面,推动自治地方人大有效开展自治条例修改和完善工作。     

论民族自治地方立法变通权的法理基础

我国民族自治地方的立法变通权有其权利、制度和社会的法理基础。在权利角度,依据权力应当来自权利的原理,立法变通权来自少数民族成员在法律规范中表达其社会性文化的权利,也是实现各民族成员权利平等的必要方式。在制度角度,为了构建立法变通权,《宪法》和《民族区域自治法》做了原则规定,《立法法》和相关法律做了具体规定,但在制定形式、制定机关和批准机关三方面存在不同的具体规定,应当根据宪法精神对相应法律规定做目的限缩解释。在社会角度,少数民族的习俗规范构成了民族共同体的秩序,立法变通权既尊重少数民族习俗规范,又有利于发展民族经济。     

关于民族自治地方的婚姻法变通规定

为了保证《中华人民共和国婚姻法》在我国民族自治地方的实施,婚姻法第36条明确规定:“民族自治地方人民代表大会和它的常务委员会可以依据本法的原则,结合当地民族婚姻家庭的具体情况,制定某些变通的或补充的规定。”新婚姻法从1981年1月1日实行以来,到目前为止,我国5个自治区、30个自治州和124个自治县(旗)共159个民族自治地方中,已经有4个自治区、10个自治州和16个自治县共30个民族自治地方,制定了婚姻法变通条例     

我国民族自治地方立法成果形式评析

根据我国《宪法》、《民族区域自治法》以及《立法法》的相关规定,我国民族自治地方中的民族自治区既享有作为一般地方国家机关的立法权,也享有制定自治法规的立法权。因此,民族自治地方在立法实践中,由于所行使的立法权性质不同,所创制的立法成果形式在立法权限、立法内容、立法程序及立法作用等方面均有所区别。本文拟对我国民族自治地方的立法成果形式进行法律分析,以期对民族自治地方民族法制建设进行一些有益的理论探讨。     

民族自治地方立法权问题研究

我国现行立法体制具有“一元二级多层”的特点。民族自治地方立法权是我国立法体制中的一个重要组成部分,本文阐述了民族自治地方立法权的主要内容,分析了民族自治地方立法权在我国立法体制中的地位,并提出了相应的完善意见。     

论广西单行条例铸牢中华民族共同体意识的立法进路——民族事务治理法治化系列研究之二

铸牢中华民族共同体意识是新时代党的民族工作的主线,也是民族地区各项工作的主线。作为我国法的渊源的重要组成部分,单行条例是民族自治地方治理民族事务的重要法律依据,民族自治地方出台单行条例,必须着眼于强化中华民族的共同性、增强中华民族共同体意识。广西民族自治县在行使自治立法权制定单行条例的过程中,在铸牢中华民族共同体意识的具体路径方面做了有益的尝试,活用立法变通权增进共同性、巧用资源禀赋为实现共同富裕提供立法保障、善用基层立法联系点增强立法认同等经验值得推广。     

自治区自治条例研究

民族自治地方自治机关拥有法律规定的立法权。自治机关的立法权主要是制定和变动自治条例和单行条例的权力,自治条例是民族自治地方立法机关和政府行使自治权力的法律标志。自治机关制定自治条例是全面实施民族区域自治制度的需要,是自治机关行使自治权的根本体现。由于多方面原因,到目前为止我国5个自治区无一出台自治区自治条例。制定和出台自治区自治条例必须严格遵循法律规范、法定原则和法定程序,新修改的《民族区域自治法》和西部大开发战略的实施是促成自治区自治条例尽快出台的契机。     

加强自治地方自治法规建设保障民族自治地方全面建设小康社会

民族自治地方的小康问题横亘于中国小康之路.宪法和法律赋予民族自治地方制定自治条例、单行条例和变通补充规定等自治法规的特殊立法权,为自治地方的社会经济发展起到了重要的保障作用.自治区、自治州、自治县三级自治地方务必加强、完善自治法规的制定、修改、实施和监督工作,使其为自治地方全面建设小康社会保驾护航.     

财政自治及其在中国的实践──兼论民族自治地方财政自治

文章从财政自治的基本内涵入手,考察了财政自治在西方发达国家的实现形式,同时紧密结合中国政治经济体制和政治发展的现状与趋势,重点阐述了财政自治在中国的实践及其类型,同时界定了民族自治地方财政自治权限及范围,论述了加强对民族自治地方财政自治研究的理论价值和现实意义,从而揭示了中央与地方关系发展的未来目标模式。     

我国民族立法体制的缺陷及其完善

我国已经形成完整的民族立法体制,其特点主要体现在民族立法在遵循国家统一立法原则的同时,民族区域自治立法有权变通上级立法主体的立法内容.这既有利于维护国家法制的统一,又有利于保障民族自治地方的立法自治权.但民族立法的质量低与民族自治区的自治条例难以出台,阻碍民族法制建设发展.对此,笔者建议:明确并坚持民族立法的基本原则,早日出台民族自治区的自治条例;民族立法既要针对本民族的具体实际,又要具有可操作性.     

创新理念 推进自治制度运行和自治地方治理现代化

Deepening reform, promoting the rule of law, and implementing the “Five Develop￣ment ” concepts have had a deep influence on the modernization of governance in ethnic autonomous regions. Based on a review of 30 years of success￣ful experiences in implementing ethnic regional au￣tonomous law, and focusing on the concepts of“innovation, coordination, green development, openness and sharing”, we need to conduct in -depth research on the ways to:promote governance by law, realize the modernization of governance;and promote the efficient implementation of ethnic autonomous systems in the ethnic autonomous re￣gion.
The 155 ethnic autonomous areas of China cover 64% of the total area of the country. There￣fore, the governance of the country cannot be a￣chieved without modernizing the governance in the ethnic autonomous regions. Modernizing the gov￣ernance in ethnic autonomous regions is a necessa￣ry element for modernizing the governance of the nation. The modernization of the ethnic autono￣mous regions actually means the legalization of the governance in ethnic autonomous areas, which is a main part of the legalization of the ethnic affairs.
The comprehensive, deepening of reform, and promoting governance by law have been strongly promoted. We should start from reality, respect differences, and take the development concepts of“innovation, coordination, green, openness and sharing” into consideration so as to promote the ef￣ficient implementation of ethnic regional autono￣mous systems through various methods. We should update our concepts, weaken specificity, solidify locality, intensify new thinking, innovate the run￣ning of ethnic autonomous systems, and promote the modernization of governance in ethnic autono￣mous regions. Based on a comprehensive analysis of the theories and practices used since the imple￣mentation of ethnic regional autonomous regula￣tions, and under the premise of intensifying “the legalization of ethnic affairs”, we should deepen the comprehensive reform of the ethnic autonomous regions, comprehensively promote the governance by law, and realize the goal of building a moder￣ately prosperous society as scheduled through im￣proving and innovating the running of ethnic re￣gional autonomous systems.
“Ethnic areas are districts with rich resources and water sources; they are ecological screen zones, cultural characteristic zones, border areas, and poor areas.” At the same time, due to histori￣cal, social and natural factors,“the natural condi￣tions of most ethnic areas are not good; their be￣ginning phase of development is low; they have many historical debts; they are located far away from the central markets and urban areas;their ur￣ban-rural gap is very obvious”, and “their gap with the eastern areas ( of China) is growing larger and larger”. The reform and the promotion of gov￣ernance by law in ethnic autonomous areas should put more emphasis on locality, ethnicity and “au￣tonomy”. Of course, we must avoid of “artificial￣ly” intensifying ethnic consciousness, and creating ethnic “differences”. Meanwhile, we should “im￣prove the capability for legal management of ethnic affairs”, “intensify the construction of laws and regulations related to ethnic work”, “legally han￣dle those issues involving ethnic factors”, “insist on resolving issues involving ethnic factors by the law, and avoid of regarding civil and criminal problems related to ethnic people as ethnic prob￣lems, or regarding common disputes in ethnic are￣as as ethnic problems. ”
We should affirm that China’s ethnic relations are harmonious, and that their economics are de￣veloping rapidly. Since the implementation of the policy of “reform and opening -up”, especially since 2005 , the economics in ethnic autonomous regions have developed dramatically; the people’s living conditions have continuously improved;bas￣ic infrastructure has significantly speeded up; and ecological protection has solidly improved. Howev￣er, the problems still prevail. For example, the poverty in ethnic areas is still serious—there are more than 25 million poor in ethnic rural areas. Therefore, the task of poverty alleviation is still very tough. In addition, the gap between urban and rural areas and between different regions is very large in ethnic autonomous regions. Finally, the rate of urbanization is very low.
In sum, during the process of modernizing so￣cial governance in ethnic autonomous regions, we must pay full attention to the five“stage character￣istics” of ethnic work in China which are the:( i) co - existence of opportunities and challenges brought by the “reform and opening -up” policy and the socialist market economy;( ii) co-exist￣ence of the state’s constant support to the ethnic ar￣eas and its low level of development; ( iii ) co -existence of the state’s constant support to the eth￣nic areas and the weak level of basic public service capability in ethnic areas; ( iv ) co -existence of the constant exchange and fusion between various ethnic groups and the disputes involving ethnic fac￣tors;and ( v) co-existence of the great achieve￣ments in anti-national splittism, religious extrem￣ity, and violent terrorism, as well as the active ter￣rorism activities in some areas. Only when we rec￣ognize this situation, can we understand the speci￣ficity of doing ethnic work in China. The innova￣tion of governance of ethnic autonomous areas and the promotion of governance by law in the whole country must start from this actual situation.
At present, we still need to clarify the conno￣tations of autonomous rights. Based on a clear clar￣ification of the basic meaning of ethnic regional au￣tonomous rights, we should deepen reform, active￣ly transform the governance of the ethnic autono￣mous regions, further deepen relevant theoretical studies, and positively promote the ethnic regional autonomous system. The main purpose of the eth￣nic regional autonomous areas is to promote the de￣velopment of the various affairs of ethnic minorities and ethnic regional autonomous areas. The purpose for improving the ethnic regional autonomous sys￣tem is to ensure the development of ethnic minori￣ties and ethnic regional autonomous regions. Im￣proving the ethnic regional autonomous system should transform from one of preferential treatment to one of nuanced development.
Looking back to the past, the legal construc￣tion of ethnic regional autonomy has made great a￣chievements. However, the preferential policies of the state and relevant institutes are still the real factors promoting the development of the various af￣fairs of the ethnic minorities and ethnic autonomous areas. As described in this article, there are multi￣ple factors which influence the efficiency and per￣formance of the ethnic regional autonomy. The eth￣nic autonomous regions are restricted by natural conditions and economic development, therefore, they have to depend on assistance from the state and the relevant institutes—this is the objective re￣ality. However, the improvement of the ethnic re￣gional autonomous system must change the status of the past, and enable the ethnic regional autono￣mous system play out its actual role so that the va￣rious affairs of ethnic minorities and ethnic autono￣mous regions can step onto a road of nuanced de￣velopment.
The future development of the ethnic regional autonomous system depends on the consensus of theoretical and practical circles, i. e. a long-term mechanism whose purpose is to enable the system itself play its actual role should be established. Only by such a mechanism, can these puzzling problems be solved and gradually improved. Tak￣ing the breakthrough of the actual effect of the sys￣tem as the starting point of the ethnic regional autonomy’s deepening of the reform, one should take the following aspects into consideration:1 ) re-examine existing laws and regulations, and im￣prove them on the basis of institutional norms, en￣hance normalization, uniformity and manipulability of the ethnic regional autonomous regulations; 2 ) sort out the relationship between the institutions in ethnic autonomous areas and the upper levels of the state institutes, as well as the relationship be￣tween the institutions on the same level;on the va￣rious institutional levels, enhance clear cognition on the position, role and organizing principles of the ethnic regional autonomous system, and avoid taking the ethnic regional autonomous system as the affairs of the ethnic autonomous areas;3 ) im￣prove the supervisory mechanisms for running the ethnic regional autonomous system; and 4 ) im￣prove the mechanisms for handling disputes on the running of the ethnic regional autonomous system.
We must work closely, share the achieve￣ments, and promote the operation of the ethnic re￣gional autonomous system. For this purpose, we should:1 ) standardize the management of the eth￣nic regional autonomous system, and weaken the“specificity”;2 ) promote the governance capabili￣ty of the ethnic regional autonomous areas, and so￣lidify the concept of“locality”;3 ) enhance auton￣omous awareness and capability, intensify “new thinking”, motivate initiatives from the autonomous areas, and improve the autonomous system from the bottom-up, and rationally allocate the power and rights of the high-level organs and the auton￣omous organs in the ethnic autonomous areas.     

政府管理体制改革视角下民族地区经济发展方式转变

我国民族地区的经济发展方式大多属粗放型,其转变的关键在政府管理体制改革。从民族地区政府管理面临的现实困境看,既面临特殊的社会历史自然环境,又要完成中央政府的经济增长考核目标和其他重点任务,还要应付民族地区复杂的群体性事件等。推动民族地区经济发展方式的转型,必须加快中央和民族地区政府职能的转变,正确处理政府与市场关系,完善对民族地区政府的绩效考核,创新民族地区政府管理体制,积极推动民族自治地区政府管理体制的改革步伐。     

论生态移民与民族地区现代化

发展是民族地区的主要任务,而生态保护则是民族地区和整个中华民族的长远利益所在。民族地区强烈的发展要求可能导致自然资源的掠夺式开发,造成这一地区脆弱的生态进一步恶化;生态保护则构成民族地区经济发展的一个重要约束条件。本文通过对二者关系的梳理,探讨"退耕还林"、"退牧还草"工程实施后,民族地区的产业发展、城镇建设和生态保护的协调问题。     

民族自治地方自然资源权利研究

民族自治地方经济发展必须立足于自然资源优势。宪法和法律规定的民族自治地方自然资源权利并未得到实际保障。究其原因,不同利益主体在民族自治地方自然资源开发和保护中存在利益冲突。分析利益冲突与相关权力博弈表现,理清问题成因和解决思路,在认清相关分权机理的基础上,完善民族自治地方自然资源权利相关的顶层制度设计,同时,采取托管式有限自治的模式,是民族自治地方自然资源权利实现的当下路径。     

四川民族自治地方非物质文化遗产保护现状与保护策略

一直以来四川民族自治地方开展了具有一定广度和深度的非物质文化遗产保护工作,逐渐形成了国家、省、市（州）、县四级非物质文化遗产代表性名录保护体系。非物质文化遗产保护的＂后申报时期＂,四川民族自治地方应力争实现民族自治地方文化资源与优势资源结合、民族文化资源带动经济发展方式的深刻转变,探索非物质文化遗产保护常态化、产业化、多元化、专业化、制度化的发展策略和制度支撑。