国终身教育法为何难以制定———论国家终身教育法的立法思想与框架

Why Is It so Difficult to Legislate National Lifelong Education in China? The Legislative Ideology and Framework of National Lifelong Education Law in China

终身教育自引入我国以来，从最初的理念演变成一种思潮乃至国家的政策方针与立法举措，期间经历了约三十年。一项成熟教育政策的最终归宿乃是立法，终身教育亦不例外。在普遍推进终身教育发展、构建终身教育体系的今天，如何从立法的高度对终身教育所体现的各项基本原则予以明确与界定，这在当前的中国社会已经成为一项迫在眉睫的重大课题。然而，自2005年中国大陆首先在地方层面开启终身教育立法以来，虽然福建省、上海市、太原市率先实现了终身教育立法零的突破，但国家层面的终身教育法仍如空中楼阁，迟迟没有进展。其中的缘由究竟何在，又是怎样的瓶颈与难题制约了国家终身教育法的制定？本文通过国内立法背景的梳理、国际立法理念的追溯与解读，以及具体立法涉及的重要条款的深入分析，对正在酝酿讨论的国家终身教育法的立法思想与法律框架进行深入探讨，所提观点可为国家终身教育法的制定提供参考。

Lifelong education has a history of more than 50 years. Since it was introduced into China， it has evolved about 30 years from an initial concept to an ideological trend， and even a national policy and legislative measure. A mature education policy will finally be legislated， as is no exception to lifelong education policy. Nowadays， under the background of accelerating the lifelong education and formulating its system， it has been an urgent issue on how to define and standardize the basic principles of lifelong education for the purpose of its legislation. However， to date， the national legislation of lifelong education has made no progress， like a castle in the air after the provincial legislation of Fujian， Shanghai， Shanxi from the year of 2005. Why has it happened? What problems have led to difficulties in legislating national lifelong education? This article reviews the national legislation， and interprets international legislation ideology， as well as the related important legislation terms. It also describes the drafting legislative ideology and framework of national lifelong education law. Based on the review and interpretation， recommendations are made for the reference of the legislation of national lifelong education.