地方政府授权低空空域特许经营权的法治化

Legal Framework for Local Governments to Grant Rights for Low-Altitude Airspace

摘要: 作为战略性新兴产业的核心制度支撑，地方政府授权低空经济特许经营权是“放管服”改革在新兴领域的延伸实践，对于激活低空空域资源价值、培育经济增长新引擎具有关键作用。然而，这一授权行为与现有行政法体系存在多重制度冲突：其权力来源与空域管理中央事权、行政许可法定原则存在张力，授权属性与传统行政特许认知存在偏差，陷入了合法性困境。在规范逻辑上，地方争取授权的权力来源是宪法自然资源国家所有原则、单行法规定、中央政策授权与地方治理需求构成的多元谱系，其授权本质是低空空域使用权的市场化配置，而非管理权让渡，试点区域的管理参与权属于法定例外的特别监管程序。锚定这一属性与边界，亟需通过完善行政立法实现制度调适。未来应在《空域管理法》立法中明确授权规则，修订《行政许可法》增设低空经济特许特别程序，既为地方争取授权提供合法性支撑，也推动行政法体系回应新兴产业发展需求。

Abstract: As the core institutional support of strategic emerging industries, the local government’s authorization of low-altitude economic franchise is an extension of the reform of “decentralization, regulation and service” in emerging fields. It plays a key role in activating the value of low-altitude airspace resources and cultivating a new engine of economic growth. However, there are multiple institutional conflicts between this authorization behavior and the existing administrative law system: there is a tension between its power source and the central power of airspace management and the legal principle of administrative licensing, and there is a deviation between the authorization attribute and the traditional administrative licensing cognition, falling into the dilemma of legitimacy. In terms of normative logic, the source of local power to seek authorization is a multi-lineage system composed of the principle of state ownership of natural resources in the Constitution, the provisions of separate laws, the authorization of central policies and the needs of local governance. The essence of authorization is the market-oriented allocation of the right to use low-altitude airspace, rather than the transfer of management power. The right to participate in management in the pilot area is a special regulatory procedure with statutory exceptions. Anchoring this attribute and boundary, it is urgent to achieve institutional adjustment by improving administrative legislation. In the future, the authorization rules should be clearly defined in the legislation of the “Airspace Management Law”, and the “Administrative Licensing Law” should be amended to add special procedures for low-altitude economic licensing, which not only provides legal support for local governments to strive for authorization, but also promotes the administrative law system to respond to the development needs of emerging industries.