原标题 [张文娟：解读收养制度 反思兰考火灾]

The original title [wang:Reading adoption system reflection LanKao fire]

　　（作者：张文娟，系北京青少年法律援助与研究中心副主任）在我们还没有从2012年的贵州毕节、河南光山、江西贵溪等一系列儿童死亡事件中平静下来时，在新年伊始，又有这么多无辜的幼小生命葬身火海。不知道，这样的重大死亡悲剧还将如何在2013年重演?

(The author:wang,Series Beijing youth legal aid and research center deputy director)While we haven't from 2012 in guizhou bijie/Henan the guangshan/Jiangxi guixi and a series of children's deaths in calm down,In the beginning of the New Year,And there are so many innocent young life inferno.Don't know,Such a great tragedy death will be how to repeat in 2013?

　　这个悲剧本该避免，《河南商报》2011年9月8日已经向政府和社会发出了预警。《河南商报》报道了袁厉害“收养”多名弃婴和孤儿事件后，兰考县民政局也有三点公开表态：一是新“收养”弃婴送福利院;二是对已建立感情的弃婴和孤儿设临时安置点;三是呼吁社会爱心人士加入到这些孤儿的爱心救助中。这似乎对问题有了一个比较妥善的处理方案，但为什么悲剧还是发生了呢?

The tragedy was supposed to avoid,[The henan business]On September 8, 2011 to the government and the society has issued a warning.[The henan business]Reports the yuen badly"adoption"More than orphans and abandoned baby after the event,LanKaoXian civil affairs bureau also have three public comment:A new"adoption"Welfare sent 35;The second is to has established the feelings of abandoned babies and orphan a makeshift shelters;The third is calling for social love people join these orphan love assistance.It seems to have a more proper treatment scheme,But why tragedy or happened?

　　我们该如何看民政局方案的合理性?又该如何看悲剧的发生?

How can we see the rationality of the civil affairs bureau scheme?And how to see a tragedy?

　　分析民政局方案的合理性，首先要从监护制度和收养制度开始。

The rationality of the analysis of the civil affairs bureau scheme,First of all from the guardianship system and adopt system began.

　　民政局的处理方案显然有严重缺陷，尤其是第二点，稀里糊涂，没有明确民政代表的国家和袁厉害对这些孩子的法律上的身份及他们之间的权利义务关系。这种方案缺陷首先来自于对监护制度的不了解。这种对监护制度的不了解也存在于媒体的报道中，如《河南商报》在标题中提到“民政部门想让她放弃监护权”。本文中一直将袁厉害对弃婴的“收养”加引号，也是因为这个原因。监护人是一种法律上的身份，自然血亲父母是当然的第一顺序监护人，通过人工辅助生殖技术受孕的子女可能有例外;其他人取得监护，需要满足法定的条件和程序才能取得监护资格。像继父母对未成年继子女取得监护资格，祖父母、外祖父母、兄姐对未成年人的监护资格，目前规定的条件和程序相对宽松，其他取得监护资格的渠道主要是收养，也即只有满足了法律规定的有关收养的形式要件和实质要件，公民才能对一个未成年人取得监护资格。

Civil affairs bureau processing scheme appears to have a serious defect,Especially the second,muddleheaded,No clear civil affairs on behalf of the country and yuen badly to the children's legal status and rights and duties in the relationship between them.This scheme defect first from the guardianship system don't understand.The monitoring system of don't know also exist in media reports,if[The henan business]In the title mentioned"Civil affairs departments want her to give up custody".This paper has been will yuen badly to the abandoned baby"adoption"quotes,Also because of this reason.The guardian is a kind of legal status,Natural blood parents are of course first order guardian,Through the assisted reproductive technology conception children may have an exception;Others get custody,Need to meet the statutory conditions and procedures in order to obtain the qualification of guardianship.As the parents of a minor stepchild obtain guardianship qualification,grandparents/grandparents/Brother elder sister on minors' guardianship qualification,The provisions of the present conditions and procedures relatively loose,Other obtain guardianship qualification of the main channel is adopted,That only meet the relevant laws and regulations adopted form elements and substantial requirements,Citizens to a minor obtain guardianship qualification.

　　那么袁厉害对这些孩子是否取得了监护资格呢?这就要分析收养制度。因为袁厉害对这些孩子的“爱心”帮助时间跨度很大，而我们有关收养的规定又是分阶段而定的，所以，我们要分阶段来分析。1992年之前，我们国家的收养规定，相对空白，对收养关系成立的程序和条件没有具体规定，也就意味着从法律上可接受事实收养。1992年制定了《收养法》，1999年修订实施了《收养法》，关于收养关系的成立，两者有所差别，如对于无抚养能力父母的送养，前者没要求登记，而后者要求登记;但是，对于收养弃婴和儿童及社会福利机构抚养的孤儿方面，收养关系成立都要求登记，这是没有差别的。这意味着，1992年之后，袁厉害“收养”的这些孩子，如果均为弃婴和儿童，又没有进行登记，她对这些孩子没有取得监护资格。这些孩子需要经过公安机关的法定查找程序确定为弃婴后，正式进入国家监护，由社会福利机构通过寄养和收养方式，帮助他们正式进入家庭。如果袁厉害“收养”的孩子中，有些是无力抚养的父母送养的，则要根据《收养法》关于收养人、送养人及被送养人的相关规定及其走过的程序来认定。

So yuen badly for these children is made guardianship qualification??This is about to analysis the system adopted.Because yuen badly for these children"love"Help time span,And we adopt relevant regulations and grading and decide,so,We will divide the stage to analysis.1992 years ago,Our country's adoption rules,Relative blank,The adoptive relationship to established procedures and conditions not specified,It means that from the legal adoption can accept the fact.1992 formulated the[Adopt method],In 1999 the implementation of the revised[Adopt method],About the establishment of the adoption,Differences in both,As for not raising ability of the parents to raise,The former didn't require registration,While the latter require registration;but,For adoption of abandoned babies and children and social welfare institutions in raising orphans,The adoptive relationship established require registration,This is no different.This means that,1992 years later,Yuen badly"adoption"Of these children,If all are abandoned babies and children,And there is no register,She didn't get to these children guardianship qualification.These children will need to be approved by the public security organ legal search program identified as after abortion,Formal into the national monitoring,By social welfare institutions through the foster and adopt way,Help them to formally enter the family.If yuen badly"adoption"Children in,Some are unable to raise parents send raise,According to the[Adopt method]About the adopter/Send the adoptee and sent the relevant provisions of the adoptee and passes through the procedures for determination.

　　所以，不存在“民政部门想让她放弃监护权”一说，而是民政部门应该在知道信息后，请法律专业人士参与组成调查组，针对每个孩子的原监护情况、孩子现在的年龄、残疾状况、如何进入袁厉害的抚养范围等情况逐个出具安置方案。这个方案的框架应该是：

so,Does not exist"Civil affairs departments want her to give up custody"said,But civil affairs departments should be in the know that information,Please legal professionals involved in composition investigation team,For each child's original monitoring situation/The age of the children now/Disability status/How to enter the yuen much support range of issued one set plan.The solution framework should be:

　　对新“收养”的弃婴，要在送交福利院的同时，通知公安机关启动查找生父母的程序，待确认为弃婴后，进入国家监护，然后由福利机构通过收养、寄养程序让其回归家庭，对于重残不适合回归家庭的，由机构抚养。

To the new"adoption"foundling,In to the welfare home at the same time,Notify the public security organ to find his or her parents start the program,To be recognized as the abandoned baby,Into the custody,Then the welfare institutions through the adoption/Foster program let it return to the family,For heavy residual is not suitable for return to the family,From the institutional support.

　　对于抚养了较长时间的不满十四周岁的未成年人，也要经过查找程序之后，宣布进入国家监护。对于适合收养的，由社会福利机构作为送养人，袁厉害可作为潜在收养人之一，但是，对于她不能收养的孩子，还是要积极配合福利机构，让这些孩子被送养，进入家庭。对于重残或因为其他原因没有收养的孩子，袁厉害可根据其抚养能力和条件，以及国家关于寄养的规定，申请成为寄养家庭之一。

For a long time raised with around a minor under the age of ten,Also should pass search after program,Declared a national monitoring.For suitable for adoption,By social welfare institutions as the adoptee send,Yuen badly can be used as one of the potential adoption,but,For she can't adopt children,Still want to cooperate with welfare agencies,Let the children were sent to raise,Into the family.For heavy residual or for some other reason not to adopt children,Yuen badly but according to its raising ability and condition,And the provisions of the state on foster,Applied to be one of the family.

　　对于已满十四周岁不满十八周岁的孩子，根据《收养法》的规定，因不符合年龄条件已无法送养，袁厉害可根据国家有关寄养的规定、自身抚养能力及与孩子对其的感情依赖情况，申请成为寄养家庭之一。

For already full ten around the age of eighteen years old children,According to the[Adopt method]regulations,Because they do not meet the conditions of age has not sent to raise,Yuen badly but according to relevant state provisions of foster/Their ability to bring up children, and the feelings depend on the situation,Applied to be one of the family.

　　我们当然知道，兰考县民政局的表态，也不单纯是对制度的不了解，还有责任心和钱的问题，从他们提出的第三点，呼吁社会爱心捐助也能看懂这一点。袁厉害长期抚养这么多孩子，民政局不会不知道，但是为什么只是消极关注?顾虑恐怕来自经费。在2010年之前，这种经费顾虑恐怕有其现实性。但问题是，2010年11月，国务院办公厅发布了《关于加强孤儿保障工作的意见》，随后财政部和民政部确立了抚养标准，机构抚养的孩子每个孩子每月1000元，散居孤儿每个孩子每月600元，不分城市和农村。对兰考这样一个贫困县，这种经费应该足够保障孩子的生活，为什么民政部门的关注还是如此消极呢?笔者对此很疑惑。

Of course we know,LanKaoXian civil affairs bureau statement,Also is not a simple of the institutions do not understand,And the sense of responsibility and the problem of money,They put forward from the third point,Calls for social donation love also can understand this point.Yuen badly long-term support so many children,Civil affairs bureau will know,But why just negative attention?I'm afraid concerns from funds.In the 2010 years ago,I'm afraid this funding concerns the reality.But the problem is,In November 2010,The general office of the state council released[On strengthening the orphan security work opinion],Then the ministry of finance and the ministry of civil affairs has established raising standards,Mechanism of raising children every child 1000 yuan a month,Scattered orphan every child 600 yuan a month,Regardless of urban and rural areas.To LanKao such a counties,The funds should be sufficient to ensure the child's life,Why civil affairs departments focus is so negative?The author was very confused.

　　我们的工作做法往往是，事发生之后，为安抚民愤，稀里糊涂的撤领导或者给领导处分。所以，只分析起因还不行，我们还要就悲剧发生时孩子的状态问几个问题。比如，被烧死的孩子中，有多少属于民政局说的应当送到社会福利机构的孩子?如果有，为什么没送?有多少是民政局说的 “临时安置点”的孩子?如果民政局将袁厉害家作为“临时安置点”，尽了什么样的监管义务?是否对袁厉害的抚养行为给予经费支持?有多少是没有进入“临时安置点”而单纯由袁厉害抚养的孩子?这些孩子民政为什么不管?

Our work is often practice,Happened after,To appease the public's anger,The fog from leadership or give leadership sanctions.so,It is not only cause analysis,We have just tragedy occurs the child's condition to ask a few questions.Such as,The children were burnt to death,How many belong to civil affairs bureau said social welfare institutions shall be sent to the children?If there is,Why didn't send?How much is the civil affairs bureau said "Temporary shelters"children?If the civil affairs bureau will yuen badly as home"Temporary shelters",The best kind of regulatory obligations?Whether to yuen badly for the raising of funds to support the behavior?How many is not enter"Temporary shelters"And simple by yuen badly raising children?These children home why no matter?

　　让我们都放下口号，就细致解剖悲剧，深挖每个案件后面的法律问题，包括法律意识问题、执法水平问题、立法问题等，从而找到制度性补救措施，以真正亡羊补牢，而不要只是为缓解民愤，稀里糊涂的撤个把领导，悲剧却还继续累加。（作者系北京青少年法律援助与研究中心副主任）

Let's put down the slogan,Detailed anatomy is a tragedy,Dig deep behind each case law,Including legal consciousness/Law enforcement level problem/Legislation problems,So as to find systematic remedial measures,To really better late than never,And don't just to ease the public's anger,The fog from a leadership,Tragedy but also continue to accumulation.(The author is Beijing youth legal aid and research center deputy director)