双语日志：演员职业资格准入制度缺乏合法性基础
This is a bilingual (Chinese and English) entry, and its Chinese version conveys more detail information specificly to the provisions that it will be mentioned. While in the English version, all of my arguments and the basic illustrations are laid either.
这是一个双语日志，相对而言，中文部分比较详细地说明了法律规定的细节。不过，英文部分也已基本说明了论点和论据。
English: License to Sing Finds no Legality in Chinese Law
by Donnie Dong
Chinese official news agency reported this month that the Ministry of Culture is going to promulgate rules requiring singers and other entertainers to have a license in order to practice their profession. The Chinese Law Prof. Blog thought poorly of this forthcoming regulation but seems couldn’t help it since China’s Administrative Licensing Law dose not clearly prohibit the governmental authorities issue this kind of license.
If we merely read the articles in Administrative Licensing Law, it seems really a pity. Fortunately, some other existing legal documents may block the attempt of this kind of ridiculous regulation.
Firstly, the Ordinance of Entertainment Place dose not require any specific license to the people who work in the entertainment place. In its Article 25, the only certifying requirement to the employees is their Resident ID card (except foreigners, this dose not breach the GATS, by the way). This ordinance was promulgated by central government in 2006, and according to China’s Legislation Law, it will prevail over any departmental regulations when the conflicts happen.
Secondly, the Ministry of Culture itself, joint with other departments in 2005, promulgated a binding regulation to encourage the development of private entertainment organizations. In this document, the requirement of license to individual performers has been abolished in paragraph 2.
Thirdy, In the Commercial Performance ordinance, the only license requirement are designed for the commercial performance organization, but not individuals. This, again, nullified any departmental regulation that tried to licensing the singers.
Interestingly, in the Layout of Culture Development in 11th Five Year, the "licensing" was mentioned twice vaguely in its article 21 and article 41. However, even it could be interpreted to the performers, this doucment still can not prevail the "Ordinances" signed by Premier.
Well, it’s enough. Even if we didn’t discuss the Legitimacy of licensing to singers from the basic theories of civil rights, this unreasonable ambition still can not find the Legality after a positive analysis to the existing Chinese legal system.
I am not a professional in Administrative Law, but I don’t think any neutral lawyer would tolerant this kind of license. From my professional arena, IP law, this license will definitely erode the fundamental neighboring right of performers that be confirmed in China’s Copyright Act.
Furthermore, this kind of license will not be practicable since it is very very difficult to check each performance in each entertainment events. Actually, there were some (maybe abolished now) reginal regulations (sorry I don’t add the link here since it is really embarrassing to a Chinese lawyer) tried to enforce the licensing regime to performers. And these regulations had been sneered by commenting "chinese people are always good at examinations…" Even we tried to believe that the authority officers are in good will, the result of these regulations will be the selective enforcement of the law, and that will be wasteful, terrible, anti-rule-of-law, shameful and useless.
DO NOT BE EVIL，or, at least, DO NOT BE SHAMEFUL AND USELESS EVIL，OK？
演员职业资格准入制度缺乏合法性基础
文 / 法豆
根据新华社的报道，文化部即将对歌唱演员和其他娱乐从业者推行职业资格证书制度，“争取在3、5年内逐步做到持证进入文化行业、持证竞聘工作岗位”。中国法律教授博客”中，通过对《行政许可法》的分析，认为尽管这个东西会被嘲笑，但并非不可能发生——因为《行政许可法》并没有能清楚地禁止行政机关发放这类职业准入许可。
如果仅仅从《行政许可法》法条表述来看的话，出台这种可笑的制度似乎真的不会有太大的障碍。幸好，还有些别的规范性文件存在，如果这种制度出台的话，很可能与这些规范性文件相冲突。
首先，《娱乐场所管理条例》中并没有要求在娱乐场所中工作的从业人员有什么特别的职业资格证，其第二十五条只要求娱乐场所记录从业人员的身份证（外国人除外——顺便提下，这也不违反WTO的GATS协定，理由就不说了）。根据立法法，这个条例对部门规章有优先效力，任何部门规章与其冲突的话，将会无效。《文化部关于《娱乐场所管理条例》贯彻执行中若干问题的意见》第四点中说“文化主管部门受理申办娱乐场所，应当建立健全核查工作制度，采取下列核查方式之一对有关人员从业资格声明的真实性进行核查”，讲得相当隐晦，但实际上，如果“核查”非外国人的“从业资格”的话，实际上已经与上述规定相冲突。
其次，文化部自己在2005年和财政部、人事部、国家税务总局联合发布了《关于鼓励发展民营文艺表演团体的意见》，里面第二点也说得很清楚：“放宽民营文艺表演团体的市场准入……取消对民营文艺表演团体注册资本限额的特殊规定和个体演员证……”。
再者，《营业性演出管理条例》中，也只规定了对演出团体的许可证要求，而没有针对个人的许可证。这就再次否定了任何对演员的职业准入制度。
在2006年公布的《国家“十一五”时期文化发展规划纲要》中，提到了两个“职业资格认证”制度，分别在第（二十一）条和第（四十一）条。这两条没有特别说对演出者个人是否进行职业许可，但弄得不好就会被理解成这个意思。幸好，这也只是国务院办公厅发的其它规范性文件，效力不高于总理签字的“条例”。
得了，即使我们不从基本的民事权利的角度去否定这种许可制度的正当性( Legitimacy )，对现行法律的实证分析就已经足以让这种无聊的许可证丧失合法性(Legality)基础了。
我不是学行政法的，但我相信任何中立的法律人都不会容忍这种许可证的存在。从知识产权法的角度看，这种许可证势必侵蚀著作权法中规定的表演者权。
再进一步说，这种行政成本高昂的规定即使真的出台了，也势必不可能真正被普遍执行，谁有那么大能耐去对每次演出都查证呢？实际上，曾经有一些地方性法规已经规定了这种许可证制度（这里就不加链接了）。这些规则也已经被人耻笑了（点这里看）。即便我们相信主张这种制度的官员们都是出于善意，这种许可证也必将导致选择性执法的出现，既浪费行政资源，又违背法治原则，而且还丢脸，更重要的是：没用。
这句话，就不翻了：
DO NOT BE EVIL，or, at least, DO NOT BE SHAMEFUL AND USELESS EVIL，OK？
相关网页 / Relevant Posts
– China Law Prof. Blog
– Danwei report
– China Media Project report
– Beijing News (新京报) report
图片来源：Sandy & Mandy幼稚园
http://angel.mingox.com/
