Richard Denis Deputy Law Clerk and Parliamentary Counsel House of Commons – Canada June 19, 2008

1. Canada The Law-Making Process in Canada –Planning and Drafting Legislation Initiated by Members of Parliament加拿大立法程序-由议员提出的立法规划和起草 Richard Denis Deputy Law Clerk and Parliamentary Counsel House of Commons – CanadaJune 19, 2008 理查德.丹尼斯先生，众议院法律事务和议会顾问部副主任

2. Introduction介绍 • Canadian Parliament 加拿大议会 • Parliamentarians, Members of Parliament and Private Members议员，议会成员和个人成员 • Private Members’ Bills (PMBs)个人议案 • Drafting legislation for Private Members为个人起草法律 • The Office of the Law Clerk and Parliamentary Counsel法律主任和议会顾问办公室 • The drafting team起草组 • Process issues: planning and setting priorities 程序问题：计划和设立重点 • The tools 工具 • The challenges挑战 • Consideration of PMBs in the House of Commons对众议院个人议案的考虑 • Questions问题 House of Commons, Canada

3. House of Commons, Canada

4. HOUSE OF COMMONS众议院 308 Members of Parliament308名议员 Elected 选举产生 Term of 5 years maximum5年任期 SENATE参议院 105 Senators 105名参议员 Appointed on the recommendation of the Prime Minister依照总理推荐提名 Hold office until age 75任期可长至75岁 House of Commons, Canada

5. Party Standings 政党组成 House of Commons, Canada

6. The House of Commons 众议院 House of Commons, Canada

7. Office of the Law Clerk and Parliamentary Counsel法律主任和议会顾问办公室 • House of Commons Administration: 1700 employees众议院有1700名雇员 • Headed by the Clerk由秘书长领导 • Office of the Law Clerk and Parliamentary Counsel: 45 employees法律主任和议会顾问办公室：45名雇员 • Serving Members and House Administration服务于议员和议会行政管理 • Legal Services法律服务 • Legislation Services立法服务 House of Commons, Canada

8. Legislation Services立法服务 • Draft PMBs起草个人议案 • Draft Amendments to Government Bills and to PMBs起草政府议案和个人议案修正案 • Publish Government Bills and PMBs:出版政府议案和个人议案 • Prepare and format 准备和形式 • Print 印刷 • Reprint as amended修正后重印 • Post on the House’s Web site在议会网站上公布 House of Commons, Canada

9. Definition of “Private Member”个人成员的定义 • A private Member (or backbencher) is a member who is not in Cabinet (i.e. Ministers and Parliamentary Secretaries)一个个人成员（或板凳队员）是指不在内阁的议员（内阁包括部长，议会秘书） • The Speaker, the Deputy Speaker, the Prime Minister, Ministers (28) and Parliamentary Secretaries (23) are ineligible members for the consideration of private Members’ business议长，副议长，总理，部长（２８名）和议会秘书（２３名）不被视为个人成员 • Presently there are 254 “Private Members” (308 – 54 = 254)目前有２５４名个人成员。 House of Commons, Canada

10. Definition of “Private Member’s Bill”个人议案定义 • Small bill (average length of 2-5 pages)小议案（平均２－５页） • Usually have one topic or objective通常只有一个主题或目标 • Many are drafted during each session 每次会议都会起草很多 • Very few receive royal assent只有极个别能够得到恩准 • Until 2003, very few were votable２００３年以前，只有很少部分可以得到投票 • In 2003, the Standing Orders of the House of Commons were amended２００３年，众议院会议常规得到了修正 • Since then, each eligible Member can introduce as many PMBs as they want, and one PMB is votable per Parliament per Member自此后，各成员可以提交自己希望数量的个人议案，每届议会每个议员有一项个人议案可以得到投票。 House of Commons, Canada

11. Private Member’s Bills – Background个人议案－背景介绍 • Traditionally used to influence government policy or to bring an issue to the attention of the House or the public传统上，它用于影响政府政策或就某个问题引起议会或公众的注意 • PMBs are drafted based on a Member’s drafting instructions or legislative proposal, which must have been researched by the Member or by the Library of Parliament, in order to review all legal, legislative, policy or political implications个人议案依照议员的的起草意见或立法提案制定，必须由议员或议会图书馆开展研究，研究所有法律，立法政策和政治含义。　 • The drafting of PMBs follows the drafting style and the conventions of the Department of Justice个人议案的起草遵循司法部的起草风格和惯例。 House of Commons, Canada

12. Private Member’s Bills – Background个人议案－背景介绍 • PMBs are drafted in one language, then translated个人议案以一种语言起草，然后翻译。 • Work is done on a strictly confidential basis, unless otherwise instructed by the Member除非议员另外要求，起草工作严格保密 • PMBs must not infringe on the financial prerogative of the Crown, unless accompanied by a Royal Recommendation除非有皇室建议，个人议案必须不损害皇室财政特权，　 House of Commons, Canada

13. House of Commons, Canada

14. Priority of Requests重点要求 Parliamentary Counsel (Legislation) deal with the many requests for the drafting of PMBs in the following order: 议会顾问办公室立法部依照下列顺序处理了许多起草个人议案的要求： • Amendments to government bills or PMBs, at Committee or Report Stage在委员会或报告阶段，对政府议案或个人议案的修正 • Members whose name is to appear on the Order of Precedence, based on their rank on the List for the Consideration of Private Members’ Business名字出现在排名表上的议员，根据其在“个人业务考虑单”上的排序 • First request from a Member, on a first-come, first-served basis如果是议员的第一次要求，根据先到先得的原则 • All other requests from a Member, including Bills “recycled” from a previous Parliament or session, on a first-come, first-served basis某个议员的所有其他要求，包括来自议会上次会议的“循环”议案，根据先到先得的原则。 House of Commons, Canada

15. Challenges挑战 • Operate in a political environment在政治环境下运作 • Maintain neutrality, objectivity and professionalism维护中立，客观和专业精神 • Not get involved in the political debate and be seen as such不介入政治辩论，不能被视为这样做 • Treat clients on an equal basis and with respect尊重公正地对待每位议员 • Not be judgmental of Members’ proposals不对议员的提案作评论 • Remain dedicated to the quality of drafting, despite the low number of bills that become law致力于起草质量，尽管很少有议案可以成为法律 • Time constraints resulting from procedural rules or Members’ expectations 出于程序规定和议员的期望值，时间有限 • Recent developments regarding the requirement for a royal recommendation (Speaker’s rulings) 最近要求提供皇室建议（议长裁定） • Risk management (Legal and other)风险管理（法律和其他方面） House of Commons, Canada

16. Our Partners我们的合作伙伴 • Members of Parliament and their assistants议员和他们的助手 • Library of Parliament (Law and Government Branch)议会图书馆（法律和政府部） • Committee and Legislative Clerks委员会和立法秘书 • Journals staff刊物人员 • Private Members’ Office staff议员办公室人员 • Justice Department司法部 House of Commons, Canada

17. Procedural ConsiderationsSummary of principal steps程序方面的考虑；主要步骤总结 • The List for the Consideration of Private Members’ Business establishes the order in which the House will consider bills over the course of a Parliament“个人业务考虑单”建立了众议院在一届议会中考虑议员议案的顺序 • Once a bill is ready for introduction, it must be sent to the Journals Branch for publication in the Notice Paper. After 48 hours, the bill is placed on the Order Paper, and may subsequently be introduced in the House by the Member and receive first reading. Once the bill has been given first reading, it is placed on the list of items outside the Order of Precedence 当一个议案准备提交时，它必须发送给刊物部门，供其在“通告簿”上发布。４８小时后，议案将在“顺序簿”上发布，并会由议员提交到议会接受一读。当议案接受一读时，它将包括在排名表“外部事物”部分之中。 • At the opening of each Parliament, the List for the Consideration of Private Members’ Business is established by means of a draw. The Speaker and Deputy Speaker of the House of Commons, the Prime Minister, Ministers and Parliamentary Secretaries are excluded from the draw.在每届议会开始前， “个人业务考虑单”上的议员顺序通过抽签决定。众议院议长，副议长，总理，部长和议会秘书不在抽签之列。 House of Commons, Canada

18. House of Commons, Canada

19. Procedural Considerations程序方面的考虑 • The Order of Precedence is established on the 20th sitting day after the draw and contains thirty names taken from the List for the Consideration of Private Members’ Business排名表是在抽签后２０天产生，包括３０个名字。 • For a Member’s name to be placed on the Order of Precedence, the Member’s bill must have been introduced and received first reading如果一个议员的名字出现在排名表上，他的议案必须已经提交，并接受一读。 House of Commons, Canada

20. House of Commons, Canada

21. Procedural Considerations程序方面考虑 6. Every Member is entitled to an item of business that may be voted on by Parliament. However, the Subcommittee on Private Members’ Business (a subcommittee of the Procedure and House Affairs Committee) may decide that a bill which has been introduced is not votable. The Subcommittee bases its decision on the following criteria:Rights and Freedoms. • Bills must not concern matters that are substantially每个议员可以有一项议案接受议会投票。但是，个人业务分委员会（是程序和议会事务委员会的分支）可以决定已经提交的议案不能接受投票。该委员会作出此类决定的标准如下： • Bills must not concern matters that are outside federal jurisdiction;提议和议案必须是有关联邦管辖范围内事务； • Bills must not clearly violate the Constitution Acts, 1867 to 1982, including the Canadian Charter of the same as any already voted on by the House of Commons in the current session of Parliament;提议和议案不能违反1867至1982宪法条约，包括加拿大权利和自由宪章。提议和议案不能与议会本次会议已投票议案内容重复。 • Bills must not concern matters that are currently on the Order Paper or Notice Paper as items of Government business;提议和议案不能包含“顺序簿”或“通报簿”上发布的政府事务议案内容。 House of Commons, Canada

22. Procedural Considerations程序方面的考虑 • An appeal procedure is available to Members who do not agree with the Subcommittee’s decision.如果议员不同意分委员会的决定，可以上诉。 • Length of second-reading debates on PMBs:个人议案二读辩论的时间长度： • Votable bills: two hours可投票议案：2小时 • Non-votable bills: one hour不可投票议案：1小时 House of Commons, Canada

23. Questions / Discussion问题/讨论 Richard Denis Deputy Law Clerk and Parliamentary Counsel House of Commons 131 Queen Street Room 7-29 Ottawa, ON K1A 0A6 CANADA (613) 943-2601 denisr@parl.gc.ca House of Commons, Canada