作者：于文豪
作者介绍：中央财经大学法学院教授
出版日期：2021年6月9日
内容提要 《宪法》第 110 条规定，地方政府分别对本级人大和上一级国家行政机关负 责并报告工作，地方各级政府都服从国务院。该规定是处理国家统一权威与有效治理这一重 大问题的关键规则，但其内涵的模糊给理论和实践带来困惑。构造其内涵的核心目标是使 自上而下的行政意志与自下而上的民主意志得到恰当平衡。地方政府双重负责是我国作为 超大型国家的独特治理规则，它是一种既重视地方也强调中央的混合权力关系，旨在维护中 央权威和统一领导的前提下，充分容许地方自主。地方政府双重负责不是同等或者同时负 责，其内涵具有差异性：在两种“负责”方面，应当区分负责的主次顺序；在两种“报告工作” 方面，应当区分报告的性质、内容和形式；“都服从国务院”的重点在于形成以责任一体为核 心的行政一体。以该条款的规范内涵为依据，应当进一步实现上下级政府事权分配的法定 化，充实地方人大的主体地位，避免上级政府工作部门直接领导下级政府，并建立行政统一 领导的程序机制和外部化规则。
关键词 人民代表大会制度 地方政府双重负责 分工负责 议行关系 中央与地方关系
Abstract: Article 110 of the Chinese Constitution stipulates that local governments are responsible for and report the work to the people’s congress at the corresponding level and the state administration at the next higher level. Local governments at all levels are subordinate to the State Council. It is a key rule in the Constitution to deal with the issue of unified authority and effective governance of the country, but the ambiguity of its connotation has caused confusion in theory and practice. The core objective of constructing the connotation of this article is to form a proper balance between the administrative will from the top and the democratic will from the bottom. The dual responsibility of local government is the unique governance rule of China as a super-large country. It is a kind of mixed power relationship which emphasizes both local and central governments, aiming at fully allowing local autonomy under the premise of maintaining the central authority and unified leadership. The dual responsibility of local government is not equal or simultaneous, and its connotation is different: In terms of the two kinds of ‘responsibilities’, a distinction should be made between primary and secondary sequences. In terms of the two types of‘reporting’, a distinction should be made between the nature, content and form of the report. The focus of‘local governments at all levels are subordinate to the State Council’is to form administration integration with responsibility as the core. Based on the normative connotation of the clause of double responsibility, we should further realize the legalization of the distribution of power between the governments at upper and lower levels, enrich the main body status of the local people’s congress, avoid the departments of governments at higher levels exercise direct leadership over governments at lower levels, and establish the procedural mechanism and externalization rules under the unified leadership of administration.