法典编纂的过程管理及程序化转型
作者简介:刘风景,华东政法大学政府管理学院教授(上海 201620)。
摘要: 民法典是新中国唯一在名称中冠以“典”的法律,也是第一部通过编纂方式形成的法典。民法典是在没有专门的编纂程序规则情况下,依靠有效的过程管理最终出台的,其成功经验弥足珍贵。民法典编纂的过程管理至少包括对象界定、组织协调、新旧衔接、阶段划分、政治保障等要素。在民法典编纂过程中遭遇或者其他法典编纂可能面临的难题主要有:属性模糊,层级难辨;内容繁多,文本庞大;过程漫长,“堵点”频现;频征民意,实效不彰。当下,中国进入法典化时代,其他领域法典编纂的高质量完成,除了需要总结运用民法典编纂的过程管理经验外,更根本的解决方案是实现编纂工作的程序化转型。法典编纂程序规则应当将民主、公正、高效、优质作为其基本价值。制定法典编纂程序规则,既要吸收民法典编纂的过程管理经验,是过去立法实践的“制度版”;也应具有民法典编纂实践所不曾采用的新要求新内容,是现行普通立法程序的“升级版”。
Process Management and Procedural Transformation of Codification
Abstract: The Civil Code is the only law in New China whose name is crowned with “code”,and it is also the first code formed through codification.The Civil Code was eventually promulgated by effective process management in the absence of special codification procedure rules,and its successful experience is valuable.The process management of civil code compilation includes at least the elements of object definition,organization coordination,new and old connection,stage division,political guarantee and so on.The difficult problems encountered in the process of civil code compilation or other codification may be faced with are fuzzy attributes and difficult to distinguish levels;the content is varied and the text is huge;the process is long,and the “blocked point” is frequent;public opinion is often collected,but the actual effect is not ideal,and so on.At present,China has entered the codification era,in order to complete the codification of other fields with high quality,it not only needs to summarize and apply the process management experience of the civil code codification,but also needs to realize the procedural transformation of the codification work fundamentally.The rules of the codification procedure should take democracy,justice,efficiency and high quality as its basic values.To formulate the procedure rules for codification,we should absorb the process management experience of codification of civil code,which is the “system version” of the past legislative practice.In addition,we should also have new requirements and new contents that have not been adopted in the compilation practice of the civil code,which is an “upgraded version” of the current ordinary legislative procedure.