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法学论文/李纬华

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  2012年12月13日,香港特区政府律政司司长袁国强证实,律政司已经向终审法院提交了书面陈述,建议终审法院在外佣居港权案的审理中,考虑根据《中华人民共和国香港特别行政区基本法》(以下简称《基本法》)第158条的规定,向全国人大常委会提请解释,澄清1999年6月26日《关于〈中华人民共和国香港特别行政区基本法〉第二十二条第四款和第二十四条第二款第(三)项的解释》(以下称“居港权解释”)中有关全国人大香港特区筹委会第四次会议于1996年8月10日通过的《关于实施〈中华人民共和国香港特别行政区基本法〉第二十四条第二款的意见》(以下称“筹委会意见”)反映了《基本法》第24条第2款各项立法原意的表述,是否亦构成了“居港权解释”中对《基本法》的解释。


  由于律政司的此番举措异乎寻常,“一石激起千层浪”,加之全国人大常委会香港基本法委员会副主任、律政司前司长梁爱诗2012年10月初评论香港特区法院的言论,以及终审法院前常任法官、现非常任法官包致金2012年10月底在其退休仪式上以“暴风雨来临”形容香港特区目前实施“一国两制”状况,使得香港本地政界、法律界的知名人士都对此事极为关注,终审法院再次被推到聚光灯下。其中,赞成者认为,此举能尝试彻底解决困扰香港特区多年的“双非”婴儿[1]与外佣的居港权问题,此举没有破坏香港特区法治或影响司法独立;反对者认为,此举可能有助于彻底解决“双非”婴儿与外佣的居港权问题,但这是政府向法院施压,严重破坏香港特区法治,冲击终审法院权威,损害高度自治,甚至更可能成为“中央政府透过释法干预香港内部事务的危险先例”;不表态者则认为,律政司没有向外界公开书面陈述的具体内容,故不便评论。[2]


  律政司的提请释法建议将终审法院推入《基本法》第158条规定的宪政处境之中。在对外佣居港权案的审理中,终审法院必然要在此宪政处境之中对律政司的提请释法建议予以回应,但做出什么样的回应也必然颇费踯躅,因为这将无可避免地牵涉到规定居港权的《基本法》第24条、全国人大常委会的“居港权解释”、全国人大香港特区筹委会的“筹委会意见”,以及终审法院在对居港权系列案件的裁判中发展出的普通法。笔者拟先分析律政司建议终审法院提请释法问题的源流和终审法院是否提请释法问题的症结,再指出终审法院当前所处的两难宪政处境,最后探讨终审法院对律政司建议可能作出的司法回应。


  一、律政司建议终审法院提请释法问题的源流


  对于哪些人能够成为香港特区永久性居民,《基本法》第24条第2款作了如下规定。“香港特别行政区永久性居民为:(一)在香港特别行政区成立以前或以后在香港出生的中国公民;(二)在香港特别行政区成立以前或以后在香港通常居住连续七年以上的中国公民;(三)第(一)、(二)两项所列居民在香港以外所生的中国籍子女;(四)在香港特别行政区成立以前或以后持有效旅行证件进入香港、在香港通常居住连续七年以上并以香港为永久居住地的非中国籍的人;(五)在香港特别行政区成立以前或以后第(四)项所列居民在香港所生的未满二十一周岁的子女;(六)第(一)至(五)项所列居民以外在香港特别行政区成立以前只在香港有居留权的人。”《基本法》第24条第3款规定:“以上居民在香港特别行政区享有居留权和有资格依照香港特别行政区法律取得载明其居留权的永久性居民身份证。”可见,成为香港特区永久性居民是在香港特区行使居留权的前提条件,即要在香港特区行使居留权,必须是香港特区永久性居民。“双非”婴儿与外佣的居港权问题,本质上是他们是否属于香港特区永久性居民的问题。


  由于《基本法》第24条第2款规定得比较原则,为了稳定社会和人心,以利于平稳过渡,全国人大香港特区筹委会第四次会议于1996年8月10日通过了“筹委会意见”,以备香港特区制定实施细则时参照。“筹委会意见”随后写入全国人大香港特区筹委会主任委员钱其琛1997年3月10日向第八届全国人大第五次会议所作的《全国人民代表大会香港特别行政区筹备委员会工作报告》,该工作报告于1997年3月14日获得批准。


  《基本法》自1997年7月1日施行以后,终审法院裁判了多宗居港权案件。最早是1999年1月29日裁判的“陈锦雅及其他人诉入境事务处处长”案(以下称“陈锦雅案”)。该案涉及《基本法》第24条第2款第3项的规定和《入境条例》新附表一第2条(c)项关于“(a)或(b)项的香港特别行政区永久性居民在香港以外所生的中国籍子女,而在该子女出生时,其父亲或母亲已享有香港居留权”的规定,其争议焦点是《入境条例》新附表一第2条(c)项中“而在该子女出生时,其父亲或母亲已享有香港居留权”的字句是否抵触《基本法》第24条第2款第3项。终审法院判决该等字句抵触《基本法》第24条第2款第3项,因而是违宪的、无效的。[3]


  全国人大常委会1999年6月26日在“居港权解释”中,针对终审法院对陈锦雅案的判决,对《基本法》第24条第2款第3项作出解释:“其中第(三)项关于‘第(一)、(二)两项所列居民在香港以外所生的中国籍子女’的规定,是指无论本人是在香港特别行政区成立以前或以后出生,在其出生时,其父母双方或一方须是符合《中华人民共和国香港特别行政区基本法》第二十四条第二款第(一)项获第(二)项规定条件的人。”实际上,全国人大常委会之所以如此解释,来源于“筹委会意见”第4条的规定:“基本法第二十四条第二款第(三)项规定的在香港以外出生的中国籍子女,在本人出生时,其父母双方或一方须是根据基本法第二十四条第二款第(一)项或第(二)项已经取得香港永久性居民身份的人。”香港特区临时立法会制定《入境条例》新附表一第2条(c)项的依据亦是“筹委会意见”第4条。不过,在终审法院,甚至在高等法院上诉法庭、原讼法庭对陈锦雅案的判决中,丝毫没有显示该案的申请人、大律师或者法官留意到“筹委会意见”的存在及其对该案的判决可能具有的影响。或许正是因为“筹委会意见”有意地或无意地遭受冷遇,才导致全国人大常委会在对《基本法》第24条第2款第3项作出解释之后,紧接着特别阐明:“本解释所阐明的立法原意以及《中华人民共和国香港特别行政区基本法》第二十四条第二款其他各项的立法原意,已体现在1996年8月10日全国人民代表大会香港特别行政区筹备委员会第四次全体会议通过的《关于实施〈中华人民共和国香港特别行政区基本法〉第二十四条第二款的意见》中。”(该意见以下称“居港权解释中的特别陈述”)。


  由于“筹委会意见”与《基本法》第24条第2款各项具有相关性,更因为全国人大常委会在“居港权解释”中的“居港权解释中的特别陈述”部分提及并赞同“筹委会意见”,故包括终审法院在内的香港特区法院,其后在对居港权案件的裁判中便不可回避“筹委会意见”在香港特区的法律效力问题,最为典型的便是终审法院于2001年7月20日裁判的“庄丰源诉入境事务处处长”案(以下称“庄丰源案”)。该案涉及《基本法》第24条第2款第1项的规定和《入境条例》新附表一第2条(a)项关于“在香港特别行政区成立以前或以后在香港出生的中国公民,而在其出生时或其后任何时间,其父亲或母亲已在香港定居或已享有香港居留权”的规定,其争议焦点是《入境条例》新附表一第2条(a)项中“而在其出生时或其后任何时间,其父亲或母亲已在香港定居或已享有香港居留权”的字句是否抵触《基本法》第24条第2款第1项。“筹委会意见”第1条与该案争议直接相关。该条规定:“基本法第二十四条第二款第(一)项规定的在香港出生的中国公民,是指父母双方或一方合法定居在香港期间所生的子女,不包括非法入境、逾期居留或在香港临时居留的人在香港期间所生的子女。”显而易见,该条规定不但与《入境条例》新附表一第2条(a)项大体一致,而且更为明确地排除了“在香港临时居留的人在香港期间所生的子女”。庄丰源就明显属于这种情况。


  在终审法院对庄丰源案的审理过程中,入境事务处处长(经大律师)退而承认,全国人大常委会从未就《基本法》第24条第2款第1项作出过解释,“居港权解释中的特别陈述”不构成全国人大常委会对《基本法》第24条第2款第1项的解释。[4]终审法院以入境事务处处长(经大律师)的退步承认为基础,在不认可“居港权解释中的特别陈述”构成全国人大常委会对《基本法》第24条第2款第1项解释的情况下,依据普通法的法律解释原则解释了《基本法》第24条第2款第1项,判决《入境条例》新附表一第2条(a)项中“而在其出生时或其后任何时间,其父亲或母亲已在香港定居或已享有香港居留权”的字句抵触《基本法》第24条第2款第1项,因而是违宪的、无效的。[5]2002年,香港特区立法会根据终审法院对庄丰源案的判决,修改了《入境条例》新附表一第2条(a)项,使之与终审法院的判决一致。[6]


  庄丰源案终审判决后的十多年来,内地“双非”孕妇争相赴港产子。自2001年至2011年,获得居港权的“双非”婴儿的数量已超过17万人,这对香港特区的社会管制、医疗以及未来的人口政策、社会福利政策造成了严重影响。[7]香港特区现任行政长官梁振英2012年3月甫一当选,即宣布包括私人医院在内的香港特区所有医疗机构2013年落实“双非”婴儿零配额,以遏制内地“双非”孕妇涌港产子。律政司司长袁国强2012年7月上任后的第一要务就是力图在法律层面彻底解决“双非”婴儿问题,并就应对举措的方向性问题向英国一位非常资深的御用大律师咨询意见。[8]


  2011年8月,香港特区又出现了外佣居港权案。如果政府在终审判决中最终败诉,那么现在香港特区工作的外佣及其家属共计40万人,可能一夜之间成为香港特区永久性居民。这又将严重冲击香港特区的福利、劳工、教育、医疗、公务和人口政策。[9]该案涉及《基本法》第24条第2款第4项的规定和《入境条例》第2条第4(a)(vi)项“就本条例而言,任何人在下述期间内不得被视为通常居于香港……(vi)受雇为外来家庭佣工(指来自香港以外地方者)而留在香港”的规定。其争议焦点是《入境条例》第2条第4(a)(vi)项的规定是否抵触《基本法》第24条第2款第4项关于“通常居住”的规定。“筹委会意见”第2条第5项与该案争议直接相关。它规定:“下述情况不被视为基本法第二十四条第二款第(二)项和第(四)项规定的在香港‘通常居住’……(5)根据政府的专项政策获准留在香港。”显而易见,现在香港特区工作的外佣就是根据香港特区政府的专项政策而被获准留在香港的。


  对该案的裁判中,高等法院原讼法庭于2011年9月30日判决《入境条例》第2条第4(a)(vi)项的规定抵触《基本法》第24条第2款第4项;[10]高等法院上诉法庭2012年3月28日推翻了原讼法庭的判决,判决《入境条例》第2条第4(a)(vi)项的规定不抵触《基本法》第24条第2款第4项。[11]由于存在终审法院对庄丰源案的判决,高等法院原讼法庭和上诉法庭都未对“筹委会意见”的法律效力作出裁判。终审法院随后受理了该案的再次上诉。鉴于“筹委会意见”与《基本法》第24条第2款各项、受争议的《入境条例》的相关条款存在直接关联,全国人大常委会又在“居港权解释中的特别陈述”部分提及并赞同“筹委会意见”,着眼于在法律层面彻底解决“双非”婴儿和外佣的居港权问题,律政司便在终审法院开庭审理该案前,采取了本文开篇述及的向终审法院提出释法建议的举措。


  二、终审法院是否提请释法问题的症结


  对于终审法院而言,是否提请全国人大常委会释法之问题的症结在哪里呢?笔者认为,其在于“筹委会意见”对香港特区法院是否具有拘束力。如果“筹委会意见”对香港特区法院具有拘束力,那么包括终审法院在内的香港特区各级法院必须遵从,庄丰源案和外佣案的争议问题自然会迎刃而解。甚至可以说,庄丰源案和外佣案的问题自始就不会出现;如果“筹委会意见”根本不可能对香港特区法院具有拘束力,那么律政司亦不会建议终审法院提请全国人大常委会解释《基本法》。律政司此举的根本意图,即在于希望全国人大常委会明确确认“筹委会意见”在香港特区法律体系中具有法律效力,对香港特区法院具有拘束力。从香港特区法院历来对居港权案件的判决来看,阻却“筹委会意见”对香港特区法院产生拘束力的障碍主要有两个。


  第一个障碍是全国人大常委会“居港权解释中的特别陈述”不被视为对《基本法》的解释。《基本法》第158条第1款规定,全国人大常委会享有对《基本法》的解释权。终审法院亦承认:“《基本法》第158条第1款赋予全国人大常委会的《基本法》解释权是以普遍的、无任何条件的语言表达的。”[12]从理论上讲,如果“居港权解释中的特别陈述”是作为全国人大常委会一个单独的解释而颁布的,那么“居港权解释中的特别陈述”的法律效力及其对香港特区法院的拘束力便不太可能招致争议。然而,问题在于“居港权解释中的特别陈述”存在于“居港权解释”之中。


  在庄丰源案的裁判中,高等法院原讼法庭认为,《基本法》规定香港特区法院可以适用香港原有法律,这就是允许其适用普通法的法律解释原则。中国内地法律解释原则对香港特区产生拘束效力的唯一途径是启用《基本法》第158条规定的解释机制,如果全国人大常委会依据《基本法》第158条行使权力,适用内地的法律解释原则对《基本法》作出解释,那么该解释就对香港特区法院具有拘束力。然而,全国人大常委会从未依据第158条解释过《基本法》第24条第2款第1项,“居港权解释”是依据第158条对《基本法》第22条第2款和第24条第2款第3项的解释,“居港权解释中的特别陈述”是“居港权解释”的附着物(addendum),故“居港权解释”在该案中对香港特区法院没有拘束力。[13]原讼法庭还认为,全国人大香港特区筹委会无权解释《基本法》。尽管“筹委会意见”写入了全国人大香港特区筹委会的工作报告,并且该工作报告得到了全国人大的批准,但就工作报告与批准决定而言,无论是单独,还是累积,均不能构成对《基本法》的解释。[14]

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宁夏回族自治区未成年人保护条例

宁夏回族自治区人大常委会


宁夏回族自治区未成年人保护条例
宁夏回族自治区人大常委会



(1990年6月29日宁夏回族自治区第六届人民代表大会常务委员会第十三次会议通过)

目 录

第一章 总 则
第二章 保护机构及其职责
第三章 学校和家庭保护
第四章 国家机关和社会保护
第五章 对有特殊情况的未成年人的保护
第六章 对违法、犯罪的未成年人的矫治和保护
第七章 法律责任
第八章 处理程序
第九章 附 则

第一章 总 则
第一条 为维护未成年人的合法权益,优化其成长环境,保护他们的身心健康,使其德、智、体、美、劳全面发展,根据宪法、法律和法规的有关规定,结合本自治区的实际情况,制定本条例。
第二条 本条例保护的未成年人,是指居住和进入本自治区境内的六周岁以上不满十八周岁的公民。
第三条 凡宪法、法律和法规赋予未成年人的人身权利、财产权利、受教育和受抚养的权利及其他权益,不受侵犯。
第四条 保护未成年人,是国家机关、政党、群众团体、武装力量、企业事业单位、居(村)民委员会、家庭、其他社会组织和每个成年公民的共同责任。
第五条 对未成年人的保护,应坚持教育、引导、预防和矫治相结合的原则。
第六条 教育未成年人爱祖国、爱人民、爱劳动、爱科学、爱社会主义,做有理想、有道德、有文化、有纪律的公民。

第七条 对侵犯未成年人合法权益的行为,未成年人及其监护人有权向未成年人保护委员会及有关部门投诉、控告。
任何组织和个人在未成年人合法权益受到侵害时,都有权制止、检举和控告。
第八条 各级人民政府和有关部门对保护未成年人工作成绩显著的组织和个人给予表彰和奖励。
第九条 各级人民政府负责本条例的组织实施。

第二章 保护机构及其职责
第十条 自治区、市、县(区)人民政府设立未成年人保护委员会。委员会由同级人民政府及有关部门、群众团体的负责人和社会各界人士组成。政府负责人任委员会主任。委员会下设办事机构,负责日常工作。
乡、镇、街道和大中型企业、事业单位要有人负责未成年人的保护工作。
第十一条 未成年人保护委员会的职责:
(一)宣传、贯彻执行国家有关保护未成年人的法律、法规和本条例;
(二)研究未成年人保护工作的重大事项,并提出具体措施和办法;
(三)对国家有关保护未成年人的法律、法规和本条例的实施情况进行监督检查,向有关国家机关提出询问和建议;
(四)组织协调有关部门的未成年人保护工作;
(五)指导下级未成年人保护委员会的工作;
(六)接受对侵犯未成年人合法权益行为的投诉、举报,提交、督促有关部门查处;
(七)其他应由未成年人保护委员会办理的有关事项。
第十二条 未成年人保护委员会的经费列入各级人民政府财政预算。
第十三条 未成年人保护委员会可筹措未成年人保护基金。保护基金的管理、使用办法由县以上人民政府制定。

第三章 学校和家庭保护
第十四条 学校要全面贯彻国家的教育方针,加强对未成年人的四项基本原则教育,理想、道德、纪律、法制教育,爱国主义、艰苦奋斗、革命传统教育。
第十五条 学校和教师必须全面关心学生的健康成长,保证他们必要的休息、文娱和课外活动时间。
第十六条 学校及主管行政部门应及时做好校园建筑物的维修,保证学生的安全。
第十七条 教师、父母(包括养父母、有抚养关系的继父母。下同)或者其他监护人,应当以健康的思想、良好的言行和正确的方法教育、影响未成年人,必须维护他们的合法权益,不得虐待、侮辱、体罚、遗弃。
第十八条 学校、家庭要互相配合,对学生、子女(包括养子女、有抚养关系的继子女。下同)进行教育和管理。
第十九条 学校和教师应保护在校未成年人中的孤儿、离婚家庭子女、再婚家庭子女、非婚生子女,使他们不受歧视。

第二十条 未成年学生遭到强索财物、侮辱、殴打时,学校和教师应当坚决制止或者及时向公安机关报告,公安机关应采取有效措施,予以保护。
第二十一条 父母或者其他监护人应当保证未成年人接受和完成国家规定的义务教育。学校和教师不得拒绝接收应当受义务教育的未成年人就学,不得随意停止未成年学生上课。
第二十二条 父母或者其他监护人对未成年子女或者被监护人,应依法行使监护权,履行抚养、教育的义务。
家庭其他成员有协助未成年人的父母或者其他监护人教育、保护未成年人的责任。
第二十三条 教师和父母或者其他监护人对进入青春期的未成年人,应当给予心理上、生理卫生方面的教育和指导。
第二十四条 学校、教师、父母或者其他监护人应当制止未成年人的下列行为:
(一)吸烟、酗酒、赌博;
(二)殴打、辱骂他人;
(三)损坏公私财物;
(四)逃学、逃夜、流浪;
(五)阅读、观看、收听有色情、淫秽、反动、封建迷信、凶杀暴力内容的书报、图片、音像制品;
(六)参加封建迷信活动。
第二十五条 父母或者其他监护人,不得唆使、诱骗、强迫未成年人订立婚约、结婚、做童养媳或者换亲。
第二十六条 父母或者其他监护人,有下列情形之一,不能履行抚养、教育未成年人义务的,居(村)民委员会会同未成年人的亲属,依照国家有关法律规定为其另行指定监护人:
(一)有严重残疾无监护能力的;
(二)正在服刑、劳动教养的;
(三)下落不明的。

第四章 国家机关和社会保护
第二十七条 未成年人的发现权、发明权、著作权、专利权受法律保护。
第二十八条 广播、电影、电视、文化、出版等有关单位和人员,要为未成年人提供适合其特点、有利于他们身心健康的精神产品。
第二十九条 卫生及其他有关部门,应当为未成年人提供必要的卫生保健条件,预防、治疗常见病、多发病和传染病。

第三十条 市、县(区)人民政府所在地,应建立未成年人文化、科技活动场所。
鼓励集体和个人资助、兴办有益于未成年人健康成长的各项公共事业。
第三十一条 营业性舞厅、酒吧等不适合未成年人活动的场所,要设置明显标志,禁止未成年人进入。对要求进入又难以判定是否未成年人的,有权要求其出示身份证,被要求者,不得拒绝。
第三十二条 任何单位和个人,不得向未成年人提供有害于他们身心健康的精神产品和物质产品。
第三十三条 禁止任何单位和个人招用未满十六周岁的未成年人当童工。不得安排十六周岁以上的未成年人从事有毒有害或者危险的作业及繁重的体力劳动。
第三十四条 对十五周岁以上不能就学的未成年人,教育、劳动等部门应积极创造条件组织就业前的职业技术培训。
第三十五条 禁止教唆、诱骗、胁迫、容留未成年人进行卖淫、嫖宿、扒窃、偷盗等违法犯罪行为。
第三十六条 禁止胁迫未成年人乞讨和进行恐怖的、危险的卖艺活动。
对乞讨、流浪的未成年人,民政部门应负责收容、遣送。
第三十七条 任何组织和个人不得强迫未成年人参加宗教活动。
第三十八条 人民法院审理离婚案件,婚姻登记机关办理离婚手续时,应当照顾未成年子女的合法权益,保护他们受抚养、受教育的权利。
第三十九条 共青团、妇联和工会有维护未成年人合法权益的权利和义务。
第四十条 公安、司法行政部门及检察、审判机关,对侵犯未成年人合法权益行为的投诉、举报应及时查处。

第五章 对有特殊情况的未成年人的保护
第四十一条 各级人民政府和有关部门应关心盲、聋、哑、残和弱智的未成年人,结合实际情况为其举办特殊教育学校或辅导班,帮助他们解决学习、生活、医疗、就业等困难。学校不得无故拒绝能正常学习的未成年残疾人入学。
无人抚养的未满十六周岁的未成年人,由民政部门设立的社会福利机构负责收养和教育。
第四十二条 任何组织和个人不得歧视、侮辱、虐待、遗弃生理上有缺陷的或者精神上有障碍的未成年人。
第四十三条 女性未成年人在入学、就业、劳动报酬等方面同男性未成年人享有同等权利。对就业的女性未成年人,应根据其生理特点安排生产劳动或工作。

第六章 对违法、犯罪的未成年人的矫治和保护
第四十四条 有条件的地区应根据需要,按照国家有关规定举办和办好工读学校。学生毕业后,有升学、参军或者劳动就业的权利。
第四十五条 公安、检察和审判机关,对违法犯罪未成年人,应采取适合其特点的方法进行审理。
第四十六条 对违法犯罪的未成年人,在羁押、劳教、服刑期间,应与成年人犯分押分管。
第四十七条 少年管教、劳动教养单位,要依法办事、文明管理,对正在少管和接受劳动教养的未成年人,必须坚持“教育、感化、挽救”的方针,加强思想改造工作,并根据社会需要,定向培训,为他们升学、就业创造条件。
第四十八条 少年管教、劳动教养单位应同正在受教育改造的未成年人的父母或者其他监护人、有关单位,签定帮教协议,共同做好帮教工作。
第四十九条 学校和有关单位对劳动教养期满和刑满释放的未成年人,应按照国家有关规定予以复学、复工或者录取、录用。
第五十条 新闻报道、公开出版物不得披露违法犯罪未成年人的姓名、住址和照片。

第七章 法律责任
第五十一条 违反本条例不够行政处罚的,由有关单位给予批评教育,责令限期改正,或者给予行政处分。
第五十二条 违反本条例第三十一条、第三十二条的,由当地工商行政管理部门与有关单位协商处理。可没收其违禁物品及非法所得,也可单处或者并处200元以上3000元以下罚款。情节严重的,责令其停业整顿或吊销营业执照、收回许可证,同时追究单位负责人或者直接责任
者的责任。
第五十三条 违反本条例第三十三条招用童工的,劳动行政部门除责令其立即退回外,每招一名童工,罚款3000元至5000元,情节严重的,工商行政管理部门还可责令停业整顿或吊销营业执照。童工身体受到损害的,招用童工者应负责治疗或给予适当补偿。
第五十四条 违反本条例第三十五条,尚不够刑事处罚的,由公安机关依照《中华人民共和国治安管理处罚条例》处罚。
第五十五条 违反本条例,构成犯罪的,依法追究刑事责任。

第八章 处理程序
第五十六条 侵害未成年人权益应予行政处理的案件,由案件发生地的有关行政部门处理。
行政管辖权发生争议的案件,由同级未成年人保护委员会协调处理。
第五十七条 行政部门处理侵害未成年人权益的案件,除国家法律、法规另有规定外,应当在受理后两个月内作出处理决定。
处理决定应当采取书面形式通知检举人、控告人、行为人、被害人及其父母或者其他监护人,并报送同级未成年人保护委员会。
第五十八条 当事人对行政处理决定不服的,可以在接到处理决定十五日内向上一级行政机关申请复议,也可以依法直接向人民法院起诉。对处理决定不申请复议、不起诉,逾期又不执行的,由作出行政处理决定的机关申请人民法院强制执行。


第九章 附 则
第五十九条 本条例应用中的具体问题,由宁夏回族自治区未成年人保护委员会解释。
第六十条 本条例自1991年1月1日起施行。



1990年6月29日

GENERAL PRINCIPLES OF THE CIVIL LAW OF THE PEOPLE'S REPUBLIC OF CHINA ——附加英文版

The National People's Congress


GENERAL PRINCIPLES OF THE CIVIL LAW OF THE PEOPLE'S REPUBLIC OF CHINA

(Adopted at the Fourth Session of the Sixth National People's
Congress, promulgated by Order No. 37 of the President of the People's
Republic of China on April 12, 1986, and effective as of January 1, 1987)

Contents
Chapter I Basic Principles
Chapter II Citizen (Natural Person)
Section 1 Capacity for Civil Rights and Capacity for Civil
Conduct
Section 2 Guardianship
Section 3 Declarations of Missing Persons and Death
Section 4 Individual Businesses and Leaseholding Farm
Households
Section 5 Individual Partnership
Chapter III Legal Persons
Section 1 General Stipulations
Section 2 Enterprise as Legal Person
Section 3 Official Organ, Institution and Social
Organization as Legal Persons
Section 4 Economic Association
Chapter IV Civil Juristic Acts and Agency
Section 1 Civil Juristic Acts
Section 2 Agency
Chapter V Civil Rights
Section 1 Property Ownership and Related Property Rights
Section 2 Creditors' Rights
Section 3 Intellectual Property Rights
Section 4 Personal Rights
Chapter VI Civil Liability
Section 1 General Stipulations
Section 2 Civil Liability for Breach of Contract
Section 3 Civil Liability for Infringement of Rights
Section 4 Methods of Bearing Civil Liability
Chapter VII Limitation of Action
Chapter VIII Application of Law in Civil Relations with Foreigners
Chapter IX Supplementary Provisions

Chapter I Basic Principles
Article 1
This Law is formulated in accordance with the Constitution and the actual
situation in our country, drawing upon our practical experience in civil
activities, for the purpose of protecting the lawful civil rights and
interests of citizens and legal persons and correctly adjusting civil
relations, so as to meet the needs of the developing socialist
modernization.
Article 2
The Civil Law of the People's Republic of China shall adjust property
relationships and personal relationships between civil subjects with equal
status, that is, between citizens, between legal persons and between
citizens and legal persons.
Article 3
Parties to a civil activity shall have equal status.
Article 4
In civil activities, the principles of voluntariness, fairness, making
compensation for equal value, honesty and credibility shall be observed.
Article 5
The lawful civil rights and interests of citizens and legal persons shall
be protected by law; no organization or individual may infringe upon them.
Article 6
Civil activities must be in compliance with the law; where there are no
relevant provisions in the law, they shall be in compliance with state
policies.
Article 7
Civil activities shall have respect for social ethics and shall not harm
the public interest, undermine state economic plans or disrupt social
economic order.
Article 8
The law of the People's Republic of China shall apply to civil activities
within the People's Republic of China, except as otherwise stipulated by
law.
The stipulations of this Law as regards citizens shall apply to foreigners
and stateless persons within the People's Republic of China, except as
otherwise stipulated by law.

Chapter II Citizen (Natural Person)
Section 1 Capacity for Civil Rights and Capacity for Civil Conduct.
Article 9
A citizen shall have the capacity for civil rights from birth to death and
shall enjoy civil rights and assume civil obligations in accordance with
the law.
Article 10
All citizens are equal as regards their capacity for civil rights.
Article 11
A citizen aged 18 or over shall be an adult. He shall have full capacity
for civil conduct, may independently engage in civil activities and shall
be called a person with full capacity for civil conduct.
A citizen who has reached the age of 16 but not the age of 18 and whose
main source of income is his own labour shall be regarded as a person with
full capacity for civil conduct.
Article 12
A minor aged 10 or over shall be a person with limited capacity for civil
conduct and may engage in civil activities appropriate to his age and
intellect; in other civil activities, he shall be represented by his agent
ad litem or participate with the consent of his agent ad litem.
A minor under the age of 10 shall be a person having no capacity for civil
conduct and shall be represented in civil activities by his agent ad
litem.
Article 13
A mentally ill person who is unable to account for his own conduct shall
be a person having no capacity for civil conduct and shall be represented
in civil activities by his agent ad litem.
A mentally ill person who is unable to fully account for his own conduct
shall be a person with limited capacity for civil conduct and may engage
in civil activities appropriate to his mental health; in other civil
activities, he shall be represented by his agent ad litem or participate
with the consent of his agent ad litem.
Article 14
The guardian of a person without or with limited capacity for civil
conduct shall be his agent ad litem.
Article 15
The domicile of a citizen shall be the place where his residence is
registered; if his habitual residence is not the same as his domicile, his
habitual residence shall be regarded as his domicile.
Section 2 Guardianship
Article 16
The parents of a minor shall be his guardians.
If the parents of a minor are dead or lack the competence to be his
guardian, a person from the following categories who has the competence to
be a guardian shall act as his guardian:
(1) paternal or maternal grandparent;
(2) elder brother or sister; or
(3) any other closely connected relative or friend willing to bear the
responsibility of guardianship and having approval from the units of the
minor's parents or from the neighbourhood or village committee in the
place of the minor's residence. In case of a dispute over guardianship,
the units of the minor's parents or the neighbourhood or village committee
in the place of his residence shall appoint a guardian from among the
minor's near relatives. If disagreement over the appointment leads to a
lawsuit, the people's court shall make a ruling.
If none of the persons listed in the first two paragraphs of this article
is available to be the guardian, the units of the minor's parents, the
neighbourhood or village committee in the place of the minor's residence
or the civil affairs department shall act as his guardian.
Article 17
A person from the following categories shall act as guardian for a
mentally ill person without or with limited capacity for civil conduct:
(1) spouse;
(2) parent;
(3) adult child;
(4) any other near relative;
(5) any other closely connected relative or friend willing to bear the
responsibility of guardianship and having approval from the unit to which
the mentally ill person belongs or from the neighbourhood or village
committee in the place of his residence. In case of a dispute over
guardianship, the unit to which the mentally ill person belongs or the
neighbourhood or village committee in the place of his residence shall
appoint a guardian from among his near relatives. If disagreement over the
appointment leads to a lawsuit, the people's court shall make a ruling.
If none of the persons listed in the first paragraph of this article is
available to be the guardian, the unit to which the mentally ill person
belongs, the neighbourhood or village committee in the place of his
residence or the civil affairs department shall act as his guardian.
Article 18
A guardian shall fulfil his duty of guardianship and protect the person,
property and other lawful rights and interests of his ward. A guardian
shall not handle the property of his ward unless it is in the ward's
interests.
A guardian's rights to fulfil his guardianship in accordance with the law
shall be protected by law.
If a guardian does not fulfil his duties as guardian or infringes upon the
lawful rights and interests of his ward, he shall be held responsible; if
a guardian causes any property loss for his ward, he shall compensate for
such loss. The people's court may disqualify a guardian based on the
application of a concerned party or unit.
Article 19
A person who shares interests with a mental patient may apply to a
people's court for a declaration that the mental patient is a person
without or with limited capacity for civil conduct.
With the recovery of the health of a person who has been declared by a
people's court to be without or with limited capacity for civil conduct,
and upon his own application or that of an interested person, the people's
court may declare him to be a person with limited or full capacity for
civil conduct.
Section 3 Declarations of Missing Persons and Death
Article 20
If a citizen's whereabouts have been unknown for two years, an interested
person may apply to a people's court for a declaration of the citizen as
missing.
If a person's whereabouts become unknown during a war, the calculation of
the time period in which his whereabouts are unknown shall begin on the
final day of the war.
Article 21
A missing person's property shall be placed in the custody of his spouse,
parents, adult children or other closely connected relatives or friends.
In case of a dispute over custody, if the persons stipulated above are
unavailable or are incapable of taking such custody, the property shall be
placed in the custody of a person appointed by the people's court. Any
taxes, debts and other unpaid expenses owed by a missing person shall
defrayed by the custodian out of the missing person's property.
Article 22
In the event that a person who has been declared missing reappears or his
whereabouts are ascertained, the people's court shall, upon his own
application or that of an interested person, revoke the declaration of his
missing-person status.
Article 23
Under either of the following circumstances, an interested person may
apply to the people's court for a declaration of a citizen's death:
(1) if the citizen's whereabouts have been unknown for four years or
(2) if the citizen's whereabouts have been unknown for two years after the
date of an accident in which he was involved.
If a person's whereabouts become unknown during a war, the calculation of
the time period in which his whereabouts are unknown shall begin on the
final day of the war.
Article 24
In the event that a person who has been declared dead reappears or it is
ascertained that he is alive, the people's court shall, upon his own
application or that of an interested person, revoke the declaration of his
death.
Any civil juristic acts performed by a person with capacity for civil
conduct during the period in which he has been declared dead shall be
valid.
Article 25
A person shall have the right to request the return of his property, if
the declaration of his death has been revoked. Any citizen or organization
that has obtained such property in accordance with the Law of Succession
shall return the original items or make appropriate compensation if the
original items no longer exist.
Section 4 Individual Businesses and Leaseholding Farm Households
Article 26
"Individual businesses" refers to business run by individual citizens who
have been lawfully registered and approved to engage in industrial or
commercial operation within the sphere permitted by law. An individual
business may adopt a shop name.
Article 27
"Leaseholding farm households" refers to members of a rural collective
economic organization who engage in commodity production under a contract
and within the spheres permitted by law.
Article 28
The legitimate rights and interests of individual businesses and
leaseholding farm households shall be protected by law.
Article 29
The debts of an individual business or a leaseholding farm household shall
be secured with the individual's property if the business is operated by
an individual and with the family's property if the business is operated
by a family.
Section 5 Individual Partnership
Article 30
"Individual partnership" refers to two or more citizens associated in a
business and working together, with each providing funds, material
objects, techniques and so on according to an agreement.
Article 31
Partners shall make a written agreement covering the funds each is to
provide, the distribution of profits, the responsibility for debts, the
entering into and withdrawal from partnership, the ending of partnership
and other such matters.
Article 32
The property provided by the partners shall be under their unified
management and use. The property accumulated in a partnership operation
shall belong to all the partners.
Article 33
An individual partnership may adopt a shop name; it shall be approved and
registered in accordance with the law and conduct business operations
within the range as approved and registered.
Article 34
The operational activities of an individual partnership shall be decided
jointly by the partners, who each shall have the right to carry out and
supervise those activities. The partners may elect a responsible person.
All partners shall bear civil liability for the operational activities of
the responsible person and other personnel.
Article 35
A partnership's debts shall be secured with the partners' property in
proportion to their respective contributions to the investment or
according to the agreement made. Partners shall undertake joint liability
for their partnership's debts, except as otherwise stipulated by law. Any
partner who overpays his share of the partnership's debts shall have the
right to claim compensation from the other partners.

Chapter III Legal Persons
Section 1 General Stipulations
Article 36
A legal person shall be an organization that has capacity for civil rights
and capacity for civil conduct and independently enjoys civil rights and
assumes civil obligations in accordance with the law.
A legal person's capacity for civil rights and capacity for civil conduct
shall begin when the legal person is established and shall end when the
legal person terminates.
Article 37
A legal person shall have the following qualifications:
(1) establishment in accordance with the law;
(2) possession of the necessary property or funds;
(3) possession of its own name, organization and premises; and
(4) ability to independently bear civil liability.
Article 38
In accordance with the law or the articles of association of the legal
person, the responsible person who acts on behalf of the legal person in
exercising its functions and powers shall be its legal representative.
Article 39
A legal person's domicile shall be the place where its main administrative
office is located.
Article 40
When a legal person terminates, it shall go into liquidation in accordance
with the law and discontinue all other activities.
Section 2 Enterprise as Legal Person
Article 41
An enterprise owned by the whole people or under collective ownership
shall be qualified as a legal person when it has sufficient funds as
stipulated by the state; has articles of association, an organization and
premises; has the ability to independently bear civil liability; and has
been approved and registered by the competent authority. A Chinese-
foreign equity joint venture, Chinese-foreign contractual joint venture or
foreign-capital enterprise established within the People's Republic of
China shall be qualified as a legal person in China if it has the
qualifications of a legal person and has been approved and registered by
the administrative agency for industry and commerce in according with the
law.
Article 42
An enterprise as legal person shall conduct operations within the range
approved and registered.
Article 43
An enterprise as legal person shall bear civil liability for the
operational activities of its legal representatives and other personnel.
Article 44
If an enterprise as legal person is divided or merged or undergoes any
other important change, it shall register the change with the registration
authority and publicly announce it.
When an enterprise as legal person is divided or merged, its rights and
obligations shall be enjoyed and assumed by the new legal person that
results from the change.
Article 45
An enterprise as legal person shall terminate for any of the following
reasons:
(1) if it is dissolved by law;
(2) if it is disbanded;
(3) if it is declared bankrupt in accordance with the law; or
(4) for other reasons.
Article 46
When an enterprise as legal person terminates, it shall cancel its
registration with the registration authority and publicly announce the
termination.
Article 47
When an enterprise as legal person is disbanded, it shall establish a
liquidation organization and go into liquidation. When an enterprise as
legal person is dissolved or is declared bankrupt, the competent authority
or a people's court shall organize the organs and personnel concerned to
establish a liquidation organization to liquidate the enterprise.
Article 48
An enterprise owned by the whole people, as legal person, shall bear civil
liability with the property that the state authorizes it to manage. An
enterprise under collective ownership, as legal person, shall bear civil
liability with the property it owns. A Chinese-foreign equity joint
venture, Chinese-foreign contractual joint venture or foreign-capital
enterprise as legal person shall bear civil liability with the property it
owns, except as stipulated otherwise by law.
Article 49
Under any of the following circumstances, an enterprise as legal person
shall bear liability, its legal representative may additionally be given
administrative sanctions and fined and, if the offence constitutes a
crime, criminal responsibility shall be investigated in accordance with
the law:
(1) conducting illegal operations beyond the range approved and registered
by the registration authority;
(2) concealing facts from the registration and tax authorities and
practising fraud;
(3) secretly withdrawing funds or hiding property to evade repayment of
debts;
(4) disposing of property without authorization after the enterprise is
dissolved, disbanded or declared bankrupt;
(5) failing to apply for registration and make a public announcement
promptly when the enterprise undergoes a change or terminates, thus
causing interested persons to suffer heavy losses;
(6) engaging in other activities prohibited by law, damaging the interests
of the state or the public interest.
Section 3 Official Organ, Institution and Social Organization as Legal
Person
Article 50
An independently funded official organ shall be qualified as a legal
person on the day it is established.
If according to law an institution or social organization having the
qualifications of a legal person needs not go through the procedures for
registering as a legal person, it shall be qualified as a legal person on
the day it is established; if according to law it does need to go through
the registration procedures, it shall be qualified as a legal person after
being approved and registered.
Section 4 Economic Association
Article 51
If a new economic entity is formed by enterprises or an enterprise and an
institution that engage in economic association and it independently bears
civil liability and has the qualifications of a legal person, the new
entity shall be qualified as a legal person after being approved and
registered by the competent authority.
Article 52
If the enterprises or an enterprise and an institution that engage in
economic association conduct joint operation but do not have the
qualifications of a legal person, each party to the association shall, in
proportion to its respective contribution to the investment or according
to the agreement made, bear civil liability with the property each party
owns or manages. If joint liability is specified by law or by agreement,
the parties shall assume joint liability.
Article 53
If the contract for economic association of enterprises or of an
enterprise and an institution specifies that each party shall conduct
operations independently, it shall stipulate the rights and obligations of
each party, and each party shall bear civil liability separately.

Chapter IV Civil Juristic Acts and Agency
Section 1 Civil Juristic Acts
Article 54
A civil juristic act shall be the lawful act of a citizen or legal person
to establish, change or terminate civil rights and obligations.
Article 55
A civil juristic act shall meet the following requirements:
(1) the actor has relevant capacity for civil conduct;
(2) the intention expressed is genuine; and
(3) the act does not violate the law or the public interest.
Article 56
A civil juristic act may be in written, oral or other form. If the law
stipulates that a particular form be adopted, such stipulation shall be
observed.
Article 57
A civil juristic act shall be legally binding once it is instituted. The
actor shall not alter or rescind his act except in accordance with the law
or with the other party's consent.
Article 58
Civil acts in the following categories shall be null and void:
(1) those performed by a person without capacity for civil conduct;
(2) those that according to law may not be independently performed by a
person with limited capacity for civil conduct;
(3) those performed by a person against his true intentions as a result of
cheating, coercion or exploitation of his unfavourable position by the
other party;
(4) those that performed through malicious collusion are detrimental to
the interest of the state, a collective or a third party;
(5) those that violate the law or the public interest;
(6) economic contracts that violate the state's mandatory plans; and
(7) those that performed under the guise of legitimate acts conceal
illegitimate purposes. Civil acts that are null and void shall not be
legally binding from the very beginning.
Article 59
A party shall have the right to request a people's court or an arbitration
agency to alter or rescind the following civil acts:
(1) those performed by an actor who seriously misunderstood the contents
of the acts;
(2) those that are obviously unfair.
Rescinded civil acts shall be null and void from the very beginning.
Article 60
If part of a civil act is null and void, it shall not affect the validity
of other parts.
Article 61
After a civil act has been determined to be null and void or has been
rescinded, the party who acquired property as a result of the act shall
return it to the party who suffered a loss. The erring party shall
compensate the other party for the losses it suffered as a result of the
act; if both sides are in error, they shall each bear their proper share
of the responsibility.
If the two sides have conspired maliciously and performed a civil act that
is detrimental to the interests of the state, a collective or a third
party, the property that they thus obtained shall be recovered and turned
over to the state or the collective, or returned to the third party.
Article 62
A civil juristic act may have conditions attached to it. Conditional civil
juristic acts shall take effect when the relevant conditions are met.
Section 2 Agency
Article 63
Citizens and legal persons may perform civil juristic acts through agents
An agent shall perform civil juristic acts in the principal's name within
the scope of the power of agency. The principal shall bear civil liability
for the agent's acts of agency. Civil juristic acts that should be
performed by the principal himself, pursuant to legal provisions or the
agreement between the two parties, shall not be entrusted to an agent.
Article 64
Agency shall include entrusted agency, statutory agency and appointed
agency. An entrusted agent shall exercise the power of agency as
entrusted by the principal; a statutory agent shall exercise the power of
agency as prescribed by law; and an appointed agent shall exercise the
power of agency as designated by a people's court or the appointing unit.
Article 65
A civil juristic act may be entrusted to an agent in writing or orally. If
legal provisions require the entrustment to be written, it shall be
effected in writing. Where the entrustment of agency is in writing, the
power of attorney shall clearly state the agent's name, the entrusted
tasks and the scope and duration of the power of agency, and it shall be
signed or sealed by the principal.
If the power of attorney is not clear as to the authority conferred, the
principal shall bear civil liability towards the third party, and the
agent shall be held jointly liable.
Article 66
The principal shall bear civil liability for an act performed by an actor
with no power of agency, beyond the scope of his power of agency or after
his power of agency has expired, only if he recognizes the act
retroactively. If the act is not so recognized, the performer shall bear
civil liability for it. If a principal is aware that a civil act is being
executed in his name but fails to repudiate it, his consent shall be
deemed to have been given.
An agent shall bear civil liability if he fails to perform his duties and
thus causes damage to the principal.
If an agent and a third party in collusion harm the principal's interests,
the agent and the third party shall be held jointly liable.
If a third party is aware that an actor has no power of agency, is
overstepping his power of agency, or his power of agency has expired and
yet joins him in a civil act and thus brings damage to other people, the
third party and the actor shall be held jointly liable.
Article 67
If an agent is aware that the matters entrusted are illegal but still
carries them out, or if a principal is aware that his agent's acts are
illegal but fails to object to them, the principal and the agent shall be
held jointly liable.
Article 68
If in the principal's interests an entrusted agent needs to transfer the

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