中医药立法及相关问题研究

【作者】 李哲；

【导师】 鲁兆麟；

【作者基本信息】 北京中医药大学 ， 中医学， 2008， 博士

【摘要】 我国作为一个人口众多、历史悠久的发展中大国，中医药在我国社会经济文化中一直起着不可或缺的重要作用。进入20世纪以来我国本土、传统的中医药受到来自西方的所谓现代医药的西医药的巨大冲击。解放后，中医药事业再度发展起来。在社会经济高度发展的今天，中医药事业及其功能的发挥离不开法制保障。但迄今为止，对于中医药法制是什么，中医药法制的功能应为何，法制功能如何实现，中医药法制存在深层次的缺陷，应当建构什么样的中医药法制，体系构造为何，缺乏足够的关注、认识和研究。理论上很模糊，现实中不明确。本文认为，我国中医药法制存在三大根本性问题：首先，中医药法制被混同于甚至屈从于医药一般法制，事实上是以主要适应于西医药的所谓“医药法制”替代了“中医药法制”；其次，中医药法制中法律层面的中医药专门法律缺失，导致中医药法制地位较低，法制化水平不高等问题；最后，中医药法制基本制度建设不足，尤其法制原则、主要制度尚未充分构建起来。以上问题导致中医药法制举步维艰、前景不容乐观。为此，应当深入、系统研究中医药法制的基本原理，对上述问题进行分析、探讨，循环往复，给出解答和出路。本文的主要内容和章节构造，也正是以上思考和论证的体现。第一章是对中医药法制与我国中医药法制的概述性回顾、考察和评判。本章首先对中医药法制的范畴进行界定，分析其概念、涵义和特征，以及与相关概念的异同；接着就回到我国当下的中医药法制，探讨法制建设所取得成绩和存在问题、缺陷；最后通过形式层面和内容层面分别探析我国当下中医药法制所存在不足。我国中医药法制与中医药事业一样，在历史上都曾经取得光辉夺目的成就。因此第二章专章对我国中医药法制的历史变迁进行考察，分为古代时期、民国时期和新中国成立后三个阶段分布探讨。第三章探讨尽快出台中医药专门法律的必要性和可行性，认为很有必要并完全可行。必要性体现在中医药法制健全之需求、中医药事业发展之需求和域外经验做法三个维度；可行性则主要体现在我国的中医药立法政策的自我认知，以及我国从中央到地方的已有中医药立法经验、素材两方面。通过以上章节探讨，本文进而认为当下我国的中医药法制迫切需要检讨、修正和重构，因此第四章明确完善、发展的路径选择。在此有三大主题值得重视：首先是选择内容的前提性问题，包括与相关法制的关系与衔接，特别应注意通过专门法律的制定来化解法律规范之间的矛盾、冲突；应借鉴古今中外的经验教训，面向未来和发展进行制度及路径选择；应斟酌定位政府的地位、角色和功能。其次是根据路径依赖原理，从现实和当下出发，选择应当立足于现有内容、制度，包括现有中央与地方，综合性与单项立法、相关立法等所确立中医药制度内容。因此本章对我国现有法律法规进行搜集梳理，并从当下的主管机构与管理体制视角、百年来中医药主管体制视角等进行评析。之后，本章对内容选择的基本思路、技巧从三个维度进行探讨，包括立法学上的技术考量，中医药自身规律、特色因素，地方需求及其已有成果、创新等。第五章是对中医药法制基本原则的建构和论证。中医药法制的基本原则是中医药法制的基础性、统领性的组成部分。中医药法制的基本原则的建构首先需要解决原则定位、不同原则间区分、原则与任务目标之构联等前提问题。本文进而认为，我国中医药法制应确立保障人民生命健康原则，社会本位原则，以及保护、扶持与促进原则等三大基本原则。第六章对中医药法制的基本制度进行构建，这也构成中医药专门法律的基本内容。主要包括中医药法制的权利化、规范化与现代化、扶持促进政策法制化以及法律实施保障体系的构建共四大部分内容。具体说，权利化主要体现为中医药已有知识、利益的知识产权权利保护机制，包括专利保护机制、商业秘密保护机制、商标与地理标志保护机制、行政保护机制等；规范化与现代化则要求引入现代化与充分制度化的法制化管理模式，应构建分级分类的中医药行政许可制度，完善许可程序、监督检查和相应处罚机制；将现有各种扶持、促进政策纳入法制轨道；法律实施保障体系是针对现实中常见的“立法无用”现象，中医药法制应通过管理体制与主管机关建设，专门立法与配套法规规章建设，以及财政保障与资金支持、行政执法体系，最终保障中医药法制发挥应有功能，实现立法和法制建构的目标。更多还原

【Abstract】 China is a developing country with long history and huge population,and Chinese Medicine always plays important role in the social,economical and culutral lives of China. Since the 20th centurty, outtraditional and indigenous Chinese Medicine suffered great intererencefrom the west medicine or“Modern Medicine”. After 1949 the People’srepublic of China come into existence, Chinese Medicine in Chinadevelops again. Nowadays, people has obtained the commonunderstanding that Chinese Medicine and its function can’t live withoutthe safeguard of law system. However, so far, we have not paid enoughattention, or have sufficient understanding or research on what’s ChineseMedicine Law System really is, its status, its funtions and the way torealize, the disadvantage and its future and so on. It’s not clear in theoryand disputed in reality.This paper figures out that our Chinese Medicine Law System facesthree fundermental matters. Firstly, it is confused with the common LawSystem of Medicine, so it is substitutee by the latter which is more fit forthe western Medicine. Secondly, it lacks for special law of ChineseMedicine, and that causes lower positon for the law system of ChineseMedicine, and its less development level. Thirdly, The basic system hasnot constructed enough , especially its principle and main mechanism arenot formed sufficiently or properly. In a word, we should study the theoryof Chinese Medicine Law System thoroughly, analyse and discuss theproblems hereinbefore, find the answer and outlet. The main content andstructure of this paper are based on these judgements and reasonings.Chapter One is about the review and judgement of the concept ofLaw System of Chinese Medicine, and our nation’s law system. Firstlythis part defines the category of Law System of Chinese Medicine,analysing its concept, meaning, character and it’s similarities anddifferences with relevent terms. Secendly this part come back to ournation’s Law System of Chinese Medicine, discussing what it hasachieved and it’s shortage and limitation. Thirdly this part discusses our Law System itself at the present time from the form view and the contentview.Our country’s Chinese Medicine Law System, as well as ChineseMedicne scince and industry, has obtained great accomplishment in theancient times. Charpter Two reviews its flowing history from Qin Periodto modern times, which are divi\ded into three segment, the ancient times,the period before 1949, and nowadays.Charpter Three discusses the necessary and feasibility for special lawof Chinese Medicine, and reaches a conclusion that we should and we alsoare capable of making that law. Our Chinese Medicine Law System’sprogressing is in need of it, so does our industry for Chinese Medicine. It’salso the foreign experience. Our government and the leaders has alreadyarrived the conlusion that the special law is in need, besides from centralto local we has accumulated so many lawmaking experiences andmaterials.After the above three charpters, it is belived that our Law System ofChinese Medicine need to be analysed and modified at prime tnese, so weshould fix on the path of betterment. There are three issues worthing greatattention. Firstly, the premise matter, included its relationship andharmonize with relevent law, act and regulation, especially throughestablishing spcial law to solve the conflict and variance. We should useexperience and lesson from the ancient, the overseas and so on forreference, we also should face the future and developing to make ourchocie and decision. We should construct the government’s position, roleand function properly. Secendly, basing on the theory of path-depending,and starting from the realism, the improvement should be established inthe system and content already in existence, from central to local,intergrate code, special code and correlative code and the like. Groudingon that, this charpter collect and pack up almost all the statutes andregulations, commenting and reviewing from the historical and practicalaspect. Thirdly, this charpter discusses from the view of lawmaking’stechnical consideration, the view of the rule, feature and requirement ofChinese Medicine itself , the view of the achievement and creationalready made and so on. Charpter Five constructs and demonstrates the basic principle forChinese Medicine Law System. The principle is the basic and leadingessence for Chinese Medicine Law System. In order to consitute theprinciple, we should solve the position, the differentiating bewteen allkinds of principles and the relevancy between principle and missions.After that, this charpter draws the conclusion that there are three mainprinciples for Chinese Medicine Law System: ensurence people’s life andhealth, social standard, and safeguard, support and promote ChineseMedicine in all.Charpter Six organizes the main mechanisms for Chinese MedicineLaw System, it is also the basic content for the special law. The mainmechanisms consist of four portions: the title converting, thestandardization and modernization for Law System, the support andpromote policy turn into legal system, the construction for enforcementand safeguard. To make those missions concrete, in the first place,Chinese Medicine’s intellectual property rights and knowledge,information, know-how and other intersts affirming mechanism, includingpatent right, business secret, trademark and geographical indication,administrative protection and so on. In the next place, the standardizationand modernization for Law System mainly requires introducing themodern and uiform management model into China, in particular thepermission mechanism to be classified and graded, to improve itsprocedure, supervise and relevent mechanism of punishment. Theconstruction for enforcement and safeguard aims at solving the socialphenomenon of“useless lawmaking”, through the construction ofmanagement system and agency in charge, the spcial law and otherrelevent laws to form a complete set, the financial safeguards and fundsupport, administrative enforcement mechanism and so forth, toimplement the Chinese Medicine Law System to realize its actual functionand mission which are set in advance.更多还原