州际协定——美国的区域法治协调机制(4)

行政协议制度在我国实践中一般被称为市长、厅局长、主任联席会议制度，行政协议是联席会议所达成的一种结果。但在法学上，所重视的就是这种结果，而不是联席会议本身。以长三角地区为例，它的缔结主体，是长三角地区的行政机关，即省、市人民政府或职能部门，是一种对等性行政契约；缔结形式是行政首长联席会议。实际上，实践中并没有行政协议的概念，它是我们提出的一个学术概念，并正在被人们广泛接受。
See F. Zimmerman, Interstate Cooperation: Compact and Administrative Agreements, (Westport, CT: Greenwood Press, 2002 ), 1-37.
在殖民时代，美国共签订九个殖民州之间的协定，它们无一例外都是涉及边界争端。
广泛存在的女王特许状使得各殖民地的边界不断变更，从而边界的争端也不可避免。于是，女王和殖民地专门规定了一个程序来解决边界问题，通过这个程序，各方殖民地可以坐在一起谈判。如果谈判不能解决，则可以通过英国枢密院（Privy Council）递交女王，由她来作出最后的裁决。这就创造了一个解决边界争端的传统。
See Felix Frankfurter and Landis, The Compact Clause of the Constitution, 34 Yale L.J. 685-758 (1925).
“协定程序”（compact process）在邦联条例中得到了具体的规定，得到正式化。该条例第6条规定：“任何两个或者更多的州能够签订州际协定、结成邦联或同盟，除非经过美国国会的同意，并且具体指出该协定的目的以及持续的期间”。美国的缔造者们对州际关系，特别对政治同盟或者地区同盟的设立非常担忧，所以联邦条例禁止各州签订州际条约或结成同盟。但问题又不能不解决，于是，缔造者们又迫不得已建立一套精巧的机制来解决该问题。邦联条约第9条规定：“对于现存的或者今后可能遇到的州际争端，包括边界、司法权等问题的冲突，美国国会有最终的裁决权。”
See Felix Frankfurter and Landis, op. cit., p. 693.
在邦联条款下，美国共签订了四个州际协定，三个涉及边界争端，还有一个涉及航海和渔业的管制。
See Interstate Compacts and Agencies. Lexington, KY.: Council of State Governments, 1983.
See Felix Frankfurter and Landis, op. cit., p. 696.
See Council of State Governments. 1983, 0p. cit., p. vi.
See Interstate Compacts, 1785-977: An Overview, The Book of States. Lexington, KY: The Council of State Governments, 1979.
随着州际合作变得不断混乱，最终导致了所谓的“协定条款”的出台。这个协定条款被规定在美国宪法第1条第10款第3项。该项认为：“任何一州，未经国会同意，……，不得与它州或外国缔结协定或联盟。”
See The Council of State Governments publications: Interstate Compacts and Agencies, 1983; Interstate Compacts and Agencies, 1979; Interstate Compacts 1783-1977 (A Revised Compilation), 1977.
See Benjamin Jones, “Interstate Compacts and Agreements: 1980-81,” The Book of States, Lexington: Council of State Governments, 1982-33.
See Patricia S. Florestano, “Interstate Compacts: the invisible area of interstate relations ”,1993 Annual Meeting of the American Political Science Association.
See Joseph F. Zimmerman. Contemporary American Federalism: The Growth of National Power. New York: Praeger, 1992.
“每个州的公民都应当赋予同其它州的公民一样的特权和豁免权。”“美国任何州都不能颁布或实施限制其它州公民的特权或豁免权的法律。”
Green, v. Biddle, 8 Wheat 1.(1823) ; State v. Hoofman, 9 Md.28 (1856);President, Managers C. v. Trenton City Bridge Co., 13 N.J. Eq.46 (1860) ; State v. Faudre,54 W. Va. 22 (1903). Cf.Coffee v Groover, 123 U.S.1(1887). See Union Fisherman‘s Cooperative Packing Co. v. Shoemaker, 98 Or.659,193 P.476(1920).
See Green v. BiddIe 8 Wheat. (21 U.S.)1(1823).
See Frederick L. Zimmerman and Mitchell Wendell. The Law and Use of Interstate Compacts. Chicago: The Council of State Governments, 1961.
See Paul T. Hardy. Interstate Compacts: The Ties that Bind. Athens: University of Georgia, 1982.
See Parris N. Glendening and Mavis Mann Reeves. Pragmatic Federalism. 2nd Ed. Pacific Palisades: Pallisades Publishers, 1984.
See Virginia v. Tennessee. 148 U. S. 503 (1893).
See Tobin v. United States. 306 F.2nd 270 at 2724, D. C. Cir. (1962).
See Steel Corp. v. Multistate Tax Commission. 434 U.S. 452 (1978).
See F. Zimmerman, Interstate Cooperation: Compact and Administrative Agreements, (Westport, CT: Greenwood Press, 2002 ), 50.
在一定条件下，有关州际协定的诉讼涉及私方利益是完全可能的。此时，该诉讼可能在州法院或低层次联邦法院中被启动。see Hinderlider v. La Plata River and Cherry Creek Ditch Co., 304 U.S. 92 (1938).
See Council of State Governments. The Book of States, 1976-77, p. 575.
See F. Zimmerman, Interstate Cooperation: Compact and Administrative Agreements, (Westport, CT: Greenwood Press, 2002 ), 165－180.
See Felix Frankfurter and Landis, op. cit., p. 696.
See Welch and Clark, “Interstate Compacts and National Integration: An Empirical Assessment of Some Trends.” Western Political Quarterly 9/73.
它们的定义是：1）边界：除了涉及河流以外的所有界限争端；2）河流：所有涉及河谷的协定；3）城市规划：主要涉及州际城市圈的问题；4）工业：主要关注的是特定领域的生产、程序以及交易；5）服务：主要是指各州的机关服务，比如犯罪控制、福利、健康以及相互的税收政策等等。
See South Central Corrections Compact; for text, see Tennessee Public Act C. 165(1955), Arkansas joined 1957: Western Interstate Corrections Compact; for text, see pamphlet under this title of Council of State Governments (1958).

See Southern Regional Education Compact, W. Vir. Acts C. 9 (1956); Western Regional Education Compact, 67 Stat. 490 (1953); New England Higher Education Compact, 67 Stat. 982 (1954).

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