【作者】 黄元姗；

【导师】 戴小明； 唐鸣；

【作者基本信息】 华中师范大学 ， 宪政与法治， 2012， 博士

【摘要】 从国家形态产生后,我国就是一个多元民族的国家共同体,在中国历史上从来没有出现纯粹的单一民族建立的政权。因此,如何处理国内民族问题,始终是历代王面临的重要问题。“属国制”(秦汉时期)、“羁縻府州制”(唐、宋时期)、土司制度(元代),以及“改土归流”措施(清代),采用的是民族自治和民族的区域自治来解决解决国内民族问题。民族区域自治,是中国的一项基本政治制度。这一制度选择经历了漫长的路程,是中国共产党运用马克思、列宁主义民族理论,经过了多年的比较、探索,沿着“民族白决权”到“联邦共和国”最终选择“民族区域自治”轨迹逐步形成的。中国的民族区域自治,是指在国家的统一领导下,各少数民族聚居地方实行区域自治,设立自治机关,行使自治权。迄今为止,全国共建立了五个自治区、三十个自治州、一百二十个自治县(旗),共一百五十五个民族自治地方。《宪法》第一百一十六条规定：“民族自治地方的人民代表大会有权依照当地民族的政治、经济、文化的特点,制定自治条例、单行条例”。自治条例是自治机关实现自治权的重要方式,它是规范自治机关的组成和自治机关的行为的规范性法律文件,是我国民族法学体系的重要组成部分。就自治条例而言,有自治区自治条例、自治州自治条例、自治县(旗)自治条例。自治州自治条例是自治州的人民代表大会,根据《宪法》、《民族区域自治法》和其他法律规定的自治立法权限,依照本自治州的政治、经济、文化特点制定的用以调整本自治州内基本社会关系的具有规范性、自主性和区域性的法律性文件,它由省、自治区人大常委会批准后生效,是自治州通往真正自治的桥梁。自治州自治条例与其他规范性法律文件竞合时效力等级如何划分?立法法对此没有作明确规定。自治州自治条例与省级地方性法规相关条款发生竞合时,优先适用自治州自治条例：在自治州的法规体系中,自治州自治条例处于最高的法律地位,自治州单行条例、自治州人民政府的行政行为不能对抗自治州自治条例；同时,由于有些自治州下辖着自治县,依据民族平等理论,当自治州自治条例与辖区内的自治县自治条例发生冲突时,必须充分把握和考虑自治权平等理论。三十个自治州在八十年代到九十年代初,有二十五个自治州制定了自治条例,这是《民族区域自治法》实施的一个重要标志。到目前为止,只有新疆的五个自治州尚未制定自治条例。2001年2月28日,第九届全国人民代表大会常务委员会第二十次会议完成了对《民族区域自治法》的修正。这样,根据修正后的《民族区域自治法》,作为《民族区域自治法》下位法的自治州自治条例的修改就提到了议事日程。从2002年12月16日至2011年4月1日,随着临夏回族自治州自治条例的修改,已颁布的二十五件自治州自治条例,全部修订完毕。虽然自治州自治机关对自治州自治条例进行了修订,从修订后的文本来看,仍有许多条款不尽人意,主要表现在如下几个方面：一是重复立法的条款较多并且大多是宣示性的规范；二是立法意图不明确并且不具有操作性：二是自治机关“一个主体两种角色”权力混乱；四是如何保障两个共同实行自治民族的民族平等权问题没有解决；五是违反上位法和越权立法的情况比较突出。这与《民族区域自治法》的实施现状有关,也与自治州自治机关对民族区域自治制度的认识程度不高,立法技术有待提高有直接关系,从这个意义上说,自治州自治条例的完善,仍然是任重而道远。自治州是宪法确定的民族自治自治地方,是法定的白治单位之一。三十个自治州国土面积为二百四十多多万平方公里,约占全国国土面积的24.5%。臼治州是民族区域自治制度在民族自治地方实现其功能和价值的重要环节。在现行政治体制的架构中,自治州的地位很特殊,就其事权而言,说人不大,其受省或自治区的行政制约很大；而说小义不小,对下管辖着若干县、市。而自治州白治机关的自治权也处于这种上下挤压之中。在这种情况下,要保障自治机关充分行使自治权,就需要构建有效的自治州自治条例实施的监督机制,其中建立自治州自治条例实施争议的解决机制和确立法律责任制度是最有效的制度选择。三十个自治州在自然地理、经济状况、人文环境等方面都具有差异性,自治立法机关应当分析当地的各个民族各有什么特点,有什么特有的风俗习惯,当地的地理条件如何,然后有针对性地制定有关自治的内容规定,这样才能使少数民族真正地加速发展。根据宪法的规定及民族自治地方的设立情况,自治州的民族关系包括纵向关系和横向民族关系。纵向民族关系是指高一级行政级别的民族自治地方,含有低一级行政级别的民族自治地方所形成的民族关系,即人套小的框式,自治州既可以辖自治县,也可能被自治区管辖。横向民族关系是指联合实行自治的民族所形成的关系。十个两个民族联合自治州属此类。这类关系包括有两个自治民族之间的关系、实行自治的民族与未实行自治的少数民族之间的关系、未实行自治的少数民族之间的关系以及民族自治地方内各少数民族与汉族之间的关系。中国的民族颁布状况是大杂居小聚居,自治州自治机关在制定自治条例时对自治州的民族关系要有一个全盘的了解,以保障各民族公民的平等参与权。当今世界是工业化、全球化、城市化的世界,一个国家乃至一个民族的发展是面向世界的工业化、现代化时期,而早已不再是封闭的自然经济时代。伴随着民族地区社会经济的不断发展,自治州也必将走上城镇化、城市化的发展道路。但现行的行政建制,不利于自治州城市化的发展,逐步有条件的撤自治州建立自治市,以保障民族区域自治制度的完整性和民族自治地方权益将成为其必然的路径选择。更多还原

【Abstract】 Our country has been a national community of multiple nations since the state pattern developed. The system of regional autonomy for ethnic minorities is a basic political system in China, which has undergone a long period of selection. The regime built by a signal nation has never appeared in Chinese history. Thus, how to deal with the domestic national issues is always the significant problem every dynasty has to face. Shu system(Qin and Han dynasties), Jimifuzhou System (Tang and Song dynasties),Tusi system (Yuan dynasty) and System Reform of Chieftains to Bureaucrats (Qing dynasty), all these systems were established to resolve domestic national problems by exercising ethnic autonomy and regional autonomy of minority of nationalities.The system of region autonomy for ethnic minorities is a basic political system in China. The system, whose development process is from National self-determination to Federal Republic and finally to regional autonomy of minority nationalities,has been gradually developed through a long time of comparing and exploring by the communist party of China with Marxism and Leninism. The system of regional autonomy for ethnic minorities in China is to carry out regional autonomy in areas inhabited by the minority nationalities and to establish local governments under the leadership of the Central Government. At present, in China. There are five autonomous regions, autonomous prefectures,120 autonomous counties or banners and 155 autonomous regions.In the current political systems, autonomous prefecture is very special as it is restricted by province or municipality and at the same time, it governs a number of counties or cities. The land area of 30 autonomous prefectures is 240 square kilometers, accounting for 24.5% of the national land area. As a consequence, autonomous prefectures are the important links in the system of regional autonomy for ethnic minorities.Article 116 of the constitution stipulates that "People’s Congresses in the national autonomous areas enjoy the right to formulate autonomous regulations and specific regulations according to the features of ethnic polities, economy and culture", which is reaffirmed by Article 19 of the Law on Regional Autonomy. Autonomous regulation is one of the important law and regulations which supervise the organs of self-government in autonomous areas to exercise power normally; the crucial form of enforcing autonomy rights; the significant part that constitutes China’s National Legal System; the key links that perfect the autonomous system in ethnic areas. In terms of autonomous regulations, they can be divided into three levels—those of autonomous regions, of autonomous prefecture and of autonomous county or banner.The autonomous regulations in autonomous prefectures, which are formulated by People’s Congress, are based on Constitution, the law of Regional National Autonomy and the restriction regulated by other laws. Concerning the features of politics, economies and cultures, these regulations are used to adjust the basic social relations in autonomous prefectures. Being normative, independent and regional, the laws documents take into effect after being approved by provincial and municipal People’s Congress Standing Committees and are the effective way for autonomous prefectures to achieve autonomy. The legislative law has no definite rules for how to divide the alternative liability level of the autonomous prefecture decree and other normative legal documents. After being drawn up by the self-government organs of autonomous prefecture, the autonomous prefecture decree must get the approval of the People’s Congress standing committee in province and autonomous region, than it will take effect. What’s more, the autonomous prefecture can make flexible provisions to law and administrative regulations based on the local characteristics. So, when there is alternative liability between autonomous prefecture decree and provincial local laws and regulations, the autonomous prefecture decree has the priority. In the autonomous prefecture regulation system, the autonomous prefecture decree has the highest legal status, and also the autonomous prefecture separate regulations and the administrative behavior of the autonomous prefecture government. Meanwhile, because some autonomous prefecture has the jurisdiction over the autonomous counties, according the national equality theory, when there is conflict between autonomous prefecture decree and autonomous county regulation within the jurisdiction of the prefecture, autonomy equality theory must be grasped and considered fully.Between the 18th century and the beginning of 19th century, of the thirty autonomous prefectures, twenty five had formed autonomous regulations, which is an important mark of implementing Law on Regional Autonomy. At present, only five autonomous prefectures in Xinjiang province haven’t yet formulated autonomous regulations. The ninth session of the National People’s Congress standing committee 20th meeting finished the amendment of Law on Regional Autonomy in February 28, 2001.According to the revised one, modifying the regulations has been put into the agenda. From Dec 16,2002 to April 1,2011,25 regulations have been issued and all of them have been revised.In spite of the fact that organs of self-governments have revised the regulations, many articles are still far from ideal, which can be showed in the following respects:first, for the most part, the reduplicative terms of the legislation are just tendentious; second, the intent of legislation is unclear and inoperable; third, the roles of the two rights are indefinite; fourth, it is still unresolved about how to guarantee ethnic equality when two or even more ethnic autonomies carry out the regulations together; fifth, violating the upper law and making law beyond the authority are obvious and complicated. Those problems are connected with the current situation of Law on Regional Autonomy, and are directly related to people’s understanding towards autonomous system, concept and technology of legislation. In this sense, there is still a long way to perfect the regulations of autonomous prefectures.In the framework of current political systems, the status of autonomous prefectures is very special in terms of the authority of office, since on one hand, these prefectures are administratively restricted by provinces and autonomous regions to a great extent; on the other hand, they govern some counties and cities. So does the right of autonomy. Under this circumstance, it is urgently needed to solve the problem of how to fully exercise the right of autonomy as well as to establish an effective supervision mechanism. And the most efficient solutions are to set up a mechanism to resolve disputes as well as establish a law and responsibility system.The thirty autonomous prefectures are distinct from each other in natural geography, economy and human environment. Autonomous legislatives, therefore, should form the regulations differently according to the features, customs and geography of each minority. In terms of ethnic customs and ideology, we should hold an objective view:on one hand, some excellent customs should be enhanced and glorified through legislations’approval; on the other hand, despite that customs unbeneficial to social development cannot be completely overcame quickly, we should guide ethnic people to get rid of rudimentary consciousness, which can boost ethnic development.According to the Constitution and the establishment of autonomous regions, ethnic relations in autonomous prefectures can be divided into two types, namely, vertical and horizontal ones. The former refers to autonomous places of higher administrative levels conclude low administrative levels which means that autonomous prefectures can govern autonomous counties and at the same time can be governed by municipalities. However, the latter belongs to the relations between areas exercising regional autonomy. Moreover, horizontal relations include relations between two ethnic autonomous areas, between ethnic autonomous areas and those without exercising ethnic autonomy, between areas without exercising ethnic autonomy, and between ethnic groups and Han people in ethnic autonomous areas. China’s ethnic groups live together over vast areas while some live in concentrated communities in small areas. The self-government should take a comprehensive understanding of the relations in autonomous prefectures before formulating relative regulations, in order to safeguard ethnic people’s rights to equal participation.Nowadays, in an industrialized, globalized and urbanized world, the development of a country and even a nation should face industrialization and globalization. Urbanization is the strong momentum and inevitable trend of China’s socio-economic development. Reducing administrative levels and proceeding urbanization in a positive and sound manner are a crucial content and also a developmental goal for the reform of China’s political system in the future. However, the current organizational systems of administration are unbeneficial to the development of urbanization in autonomous prefectures. With the unceasing development of social economy, autonomous prefecture will turn into the process of urbanization. Removing the autonomous prefecture to build municipality, guaranteeing the integrity of autonomous regional systems and rights of autonomous areas will be an inevitable choice.更多还原