作者：李少文
作者介绍：中共中央党校（国家行政学院）统一战线教研部副教授，法学博士
出版日期：2025年12月9日
内容提要 坚持在法治轨道上深化改革是新时代国家治理的鲜明特征。中央通过授权的方式调动地方改革的积极性、主动性，不仅是一种立法活动，也是一种治理选择。中央授权地方制定专门的地方性法规、授权国务院在地方暂时调整或者暂时停止适用法律的部分规定，分别创设了专门性的立法权和差异化的行政权。这些法治方案体现了不同的改革思路和治理目标，塑造了中央以法治方式推进地方改革的授权改革模式，形成了“中央依法授权—地方合法改革”的治理机制。中央依法授权体现了全国人大及其常委会实施宪法的创制性特征，地方合法改革体现了地方法治运行原理。面对改革和法治之间的内在张力，授权改革模式还存在进一步调适完善的空间。在结构上，应当建立以合理性为中心的授权标准，中央可以按照不同治理目标选择相应授权工具，推进不同力度的改革；在过程中，应当完善中央主导、地方协同的改革机制，以法治凝聚改革共识，加强过程监督，以及完善地方改革的成果衡量和经验扩散机制。
关键词 授权 改革 法治 国家治理 宪法实施
Abstract: Persisting in deepening reforms within the framework of the rule of law is a defining feature of national governance in the new era. The central government mobilizes local authorities’ enthusiasm and initiative for reform through delegation, which constitutes not only a legislative activity but also a governance strategy. The central government authorizes local governments to enact specialized local regulations and permits the State Council to temporarily adjust or suspend the implementation of certain provisions of laws locally, thereby establishing specialized legislative authority and differentiated administrative powers. These legal frameworks reflect diverse reform approaches and governance goals, shaping the delegation reform model whereby the central government advances local reforms through lawful authorization, forming a governance mechanism of ‘central lawful delegation — local lawful reform’. Central lawful delegation reflects the creative characteristics of the National People’s Congress and its Standing Committee in implementing the Constitution, while local lawful reform embodies the operational principles of local rule of law. Despite the potential tensions between reform and the rule of law, the delegation reform model still requires further refinement. Structurally, a reason-centered authorization standard should be established, enabling the central government to select appropriate delegation tools and implement reforms of varying intensity based on different governance objectives. In the process, a reform mechanism led by the central government and supported by local authorities should be improved, leveraging the rule of law to foster consensus on reform, strengthening process oversight, and refining mechanisms for measuring local reform outcomes and disseminating practices.