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张千帆:英国为何“无宪法有宪政”——从《大宪章》谈起

《大宪章》就是一个伟大的制度创新,这种制度创新是怎么来的?教会在《大宪章》时代到底发挥了什么作用?英国为什么一直坚持不制定成文宪法?
 
 
张千帆:英国为何“无宪法有宪政”——从《大宪章》谈起 
 
 
  (“中国:历史与未来”网站编辑说明:宪政是政治现代性的一个关键问题,在世界范围一如在中国都是如此。而作为现代宪政的发端与最重要的范式的英国,是如何“无宪法却成功地落实了宪政“,这个问题长久地吸引着世界各国宪法与政治学者们的关注。认真地了解其历史,体认这其中所内涵的超越具体历史的智慧与意义,相信对探索宪政道路、处于历史大变革时代需要做出明智的行动选择的中国人来讲,尤其有着现实的意义。也许,多了解些历史,以历史视角审视某些现象与制度的产生与演变,有助于矫正那种过度用观念或理论来倒推逆向解释论证历史的倾向,这篇文章,给我们提供了些有用的启示。文章源自一次讲座的讲稿,故此次发表时也保持了原作的口语风格)。
 
英国确实是一个非常神奇的国家。那么小一个岛国,在自然资源等各个方面并没有什么特别的禀赋,却是近代政治文明的发源地和工业革命的发生地。全球化这个话题今天很热,而全球化的开端就是工业革命;没有工业革命,全球化肯定是不可能发生的。我们今天把全球化当成理所当然、习以为常,但全球化不仅是人员、物资、资金的全球化,同时也可以是病毒和疫情的全球化。所以全球化未必一定是好的全球化,也可能是坏的全球化;它有风险,需要谨慎。但全球化的步伐是不会被遏制的。现在我们看到了全球化的成本和风险,只是让我们更加谨慎地对待全球化并处理全球化过程中出现的问题。因为全球化基础是经济的全球化,而经济全球化的本质是追求利益最大、成本最低。这个步伐是不会停止的,资金永远要找成本最低、回报最大的地方去投资。在这个意义上,马克思没有讲错,经济是一切的“基础”。没有这个基础,全球化不可能开始,也不可能持续;有了这个基础,全球化停不下来。这也是为什么一切阻碍思想和信息传播的“墙”最终都要倒掉,因为它在和经济基础对着干。
 
一、文明进化的动力
 
 
当然,马克思的经济决定论也有显然不对的地方。只要再稍微追问一下,为什么英国会发生两次工业革命呢?它有什么特别的地方?为什么工业革命没有发生在世界其它地方?即可见经济未必总是决定一切的自变量。很多人都好奇,工业革命为什么没有发生在中国。事实上,社会学的另一位创始人(加上杜克海姆,三位都是德国人)马克斯·韦伯写过两本书,专门探讨工业革命、经济和文化之间的关系。他不同意马克思的经济决定论,认为不是经济决定政治、文化等其它“上层建筑”,而是反过来,特定的宗教文化引发了英国的工业革命这个“经济基础”。他的第一本书《新教伦理与资本主义精神》解释了为什么英国会发生工业革命,第二本书《中国的宗教——儒教和道教》论证了为什么中国文化和士绅官僚制度不可能承载工业革命。韦伯的“文化决定论”(这样概括有点夸张)和马克思的经济决定论对立,认为主要是文化决定了为什么工业革命不可能发生在中国,只能发生在英国。当然,经济决定论也有例外,“上层建筑”可以对经济基础产生“反作用”,但反作用毕竟还是次要的,经济基础才是决定性的。马克思的经济决定论解释不了经济本身是怎么发展起来的,生产力落后的原始社会是如何进化到奴隶社会、封建社会、资本主义社会的。
 
除了经济决定论和文化决定论之外,还有一个解释文明进化的路径是制度。当代诺贝尔经济学家道格拉斯诺斯前几年刚去世,他的主要贡献就是从制度去探讨经济和社会发展的原因。他和另一位作者温加斯特发表过一篇非常出色的论文,论证了英国工业革命的制度渊源。我们知道,英国工业革命是发生在18世纪的事情,但是它的制度却来源于17世纪。17世纪英国发生了什么?1688-89年,发生了所谓的“光荣革命”。诺斯等人认为,“光荣革命”改革了英国的宪政制度,造就了一个在政治上和财政上负责任的政府。这样的政府能够有效地保障政府的信誉和人民的财产,这样就能让老百姓安心地去投资,甚至迫切希望借钱给政府,因为这个政府有信用。政府拿了老百姓的钱去冒险、去投资,挣了钱之后,老百姓能够得到回报。尤其在英国和其它国家打仗的时候,老百姓争先恐后去买国债,因为如果打赢了,他们和国家一样发“战争财”。这样一来,英国政府就能获得足够的社会资源打赢战争,英法战争就是一个典型。相比之下,法国政府之所以没有这个手段,归根结底是因为政府不对人民负责,因而没有社会信用。
 
 英国政府之所以有信用,正是因为1688-89年“光荣革命”带来的制度变革。“光荣革命”的作用确立“议会至上”,限制了国王权力,最终使英国国王成为一个虚君。假如国王还是掌握了生杀大权而且非常任性的话,这个政府就不可能有信用,老百姓也不会安居乐业,更不会想到把钱借给政府。如果借钱给政府等于打水漂,又有哪个傻子会这么做呢?因此,英国崛起和工业革命的制度根源是“光荣革命”,而“光荣革命”的源头则是在1215年签署的《大宪章》。当然,二者相距四百多年,但《大宪章》是英国宪政的源头。没有《大宪章》,“光荣革命”不可能发生;没有“光荣革命”,工业革命以及以后的一切都不会发生。这将不仅改变英国的历史,也将改变整个世界的文明史,包括我们自己的历史。
 
因此,要探讨英国乃至世界文明进程,都绕不开1215年的《大宪章》。我想借此探讨英国另一个很神奇的现象,那就是它和几乎所有国家都不一样,没有一部成文宪法,却有相当不错的宪政。许多国家和我们一样,“有宪法无宪政”;英国则恰好相反,“无宪法有宪政”。
 
二、宪法是什么
 
 
让我先解释一下“宪法”是什么。宪法是什么,我们貌似都知道。中国就有一部宪法,1982年制定,理论上是中国的“根本大法”、“具有最高法律效力”。如果要看看一部成文宪法到底规定了哪些东西,可以就看我们自己的宪法。1982年宪法有四章,第一章“总纲”有一些意识形态的东西,第二章是公民权利,第三章是国家权力。由此可见,一部宪法最关键的有两方面,一是国家权力的分配,一是个人权利保障。这就是宪法。其实,宪法就是这么一部法,跟其它的立法性质差不多,没什么特别的地方,所以也未必要那么把它当回事。但是这部法确实通常被认为是最重要的、最基本的立法,就是因为它规定了这两块最重要的东西。
 
至少从第二次世界大战以后,几乎所有国家都有成文宪法。所谓的成文宪法,也就是这么一部规定国家权力与个人权利的效力等级最高的立法而已。但是不是每个国家都必须有成文宪法?至少在逻辑上不一定,英国就不是这样。虽然英国的《大宪章》、《权利法案》中某些条款仍然有效,但它们都是立法,不是成文宪法。事实上,英联邦国家的做法也不完全一样。加拿大、澳大利亚、新西兰以前都是英国殖民地,后来独立成国。这些国家虽然也有宪法性文件,但未必只有一部成文宪法。有的国家分开规定国家权力和个人权利,相当于有两部“宪法”。譬如加拿大1867年立国的时候制定了《宪法法》(Constitution Act),规定了政府框架结构;1982年又制定了一部《宪法法》,主体是《权利与自由宪章》。新西兰也是这样,澳大利亚则索性没有权利宪章,只有一部关于政府权力的组织法,规定议会、法院、行政之间的权力关系,相当于它的宪法。
 
还有的国家,宪法不叫宪法,但其实是一部宪法。最典型的例子是德国的《基本法》,1949年盟军归还主权时制定。为什么叫“基本法”而不叫宪法?是因为当时东西德分裂。东德属于社会主义阵营,后来还建了一道“柏林墙”,以防东德人民逃亡西德。西德政府建立,将来一定要实现两德统一;统一以后,再制订一部统一的宪法。我们知道,1990年柏林墙倒塌,两德终于统一,或者更准确地说,西德兼并了东德。但是《基本法》却没有改名,这是因为从1949到1990年这四十年时间,《基本法》被证明非常的好,今天是世界上最成功的一部宪法。他们觉得也就没必要改了,所以“基本法”的称呼沿用至今,却是最好的一部宪法。
 
以色列也没有一部成文宪法,而是有许多部“基本法”:1958年《议会基本法》、1964年《总统基本法》、1976年《军队基本法》、1984年《司法基本法》、2001年《内阁基本法》,以及1992年《人的尊严与自由基本法》和1994年《职业自由基本法》等。后面这两部人权基本法被以色列的最高法院解释为具有准宪法的效力,也就是说超越了一般的立法效力。如果一般立法和这些基本法相抵触,将被判决无效。所以绝大多数国家都是有一部成文宪法,有的英联邦国家相当于有两部宪法,以色列则有很多部基本法,而老牌帝国英国至今仍拒绝制定一部宪法或效力特别的基本法。但是从以色列这个例子,可以总结出宪法最本质的地方,那就是它的最高效力。
 
说到这个问题,不能不说说近代第一个立宪国家——美国。美国宪法是世界上最早的成文宪法,而美国人把自己的宪法称之为“更高的法”(higher law),就是说比普通立法效力更高。英美都是“普通法”国家,所谓普通法就是指法院判例;在确立议会至上之后,法院判例的效力等级低于议会立法,而议会立法又低于宪法——如果有一部宪法的话。宪法的本质就是体现在它的效力要比普通立法更高,是一部高于普通立法的“高级法”。在美国,这个问题在1803年的里程碑判例马伯里诉麦迪逊得到了确立,宪法是高于普通立法的。如果说,普通立法和宪法相抵触,普通立法必须让位,不得抵触宪法。
 
但是在英国,这个问题不存在。问题存在的前提是这个国家存在高级法,叫它宪法也好、基本法也好。但是这个条件对英国不成立,不只是英国没有一部立法叫“宪法”或“基本法”,而是因为英国根本没有“高级法”这个概念,所有立法的效力等级都是一样的。不同立法发生冲突怎么办?英国处理这个问题的原则很简单:后法优于先法。如果以后制定的一部议会立法和之前的立法发生冲突,那么不管以前的这部法有什么样的崇高名目,《大宪章》也好,“光荣革命”之后通过的《权利法案》也好,统统要给后来的立法让位。所以和美国不同,英国不存在宪法意义上的“高级法”。高级法的意思就是,这部法是有“定力”(entrenchment)的。它立在这个地方,好比一堵墙,只要它本身保持完好,那么不论是以前制定的法还是以后制定的法,都不能和它发生抵触。如果后来有一部法“撞墙”了,那对不起,只好“夭折”了——法院会判它违宪无效。
 
这个问题在英国没有也不会出现,因为英国从来没有制定过一部宪法,所以法院无权判决任何立法违宪无效,因为它根本没有“宪”。这也解释了《大宪章》的本质。它无疑是一部伟大的英国立法,但是它的效力上并不比任何其它立法更高,所以后来的立法可以随便修改《大宪章》。这是为什么《大宪章》有63条,但是今天只有几条仍然适用,其它的都被后来的立法改写或撤销了。这是英国和当代几乎所有国家都不同的一个特点,非常奇特。
 
我们可以拿英国和美国做一个比较。美国原先是英殖民地,也继承了英国的普通法传统。但美国是一个不听话、不“孝顺”的孩子,因为美国通过“独立革命”和自己的母国打了一仗,革了英殖民地的命,不仅发布了伟大的《独立宣言》,而且后来做的许多事情也是革命性的。其实最具有革命性的行动就是1788年制定成文宪法,从而和英国的“不成文宪法”传统一刀两断。在这之前,除了美国的一些州之外,其它国家都没有严格意义上的“成文宪法”这一说。是美国首开先河,后来世界上绝大多数国家包括我们都追随美国的伟大先例,而没有跟着英国,而英国至今也不借鉴这个“逆子”的做法。照理说,美国做的那么成功,而且各国大势所趋,英国为什么还不制定一部成文宪法呢?因为制定成文宪法会有许多好处,没有成文宪法会有许多不便,但它就是不制定成文宪法。
 
英国之所以坚持不制定成文宪法,关键在于它和美国的立宪思路有一个根本不同。这个思路就是“光荣革命”所确立的议会至上,以及和它配套的责任内阁制和象征君主制。当然,英国实现虚君制经历了漫长的过程。1689年只是确立了议会高于行政权,但是国王仍然享有很大的权力。之后又经过了两百来年,国王才真正退出政治舞台。今天英国虽然还有国王,但已完全没有实权。这次新冠疫情,女王也出来说话,但是除了发表一通演讲之外,没有别的权力。在法治国家,最高权力当然就是制定法律的权力,而它牢牢地掌握在议会——更准确地说,下议院(House of Commons)——手里。
 
这个体制和美国是不一样的。我们知道,美国宪法体制有一个关键词叫“三权分立”。它和议会至上的最大区别就是它有一个实权总统,总统分享了一部分议会权力。在宪法上,国会、总统和最高法院是平起平坐的。这当然是建立在法国孟德斯鸠的理论基础之上,美国接受并首先实施了这套理论,认为议会权力必须受到牵制,否则容易产生“多数人暴政”。不过,分权是不是必须像美国这种分法,那倒也不一定。并不是说美国后来居上,就是美国正确。其实在议会和行政分权问题上,我认为英国做得更好。但英国为了保证议会至上,坚持不制定一部成文宪法,因为一旦制定出一部“高级法”,宪法的效力要比普通立法更高,下面马上就会带进来一个“第三者”,那就是法院。有了宪法,法院就有权解释宪法,并依据成文宪法宣布议会立法无效。这样会极大提高法院的地位,议会也就不那么“至上”了。
 
当然,这正是美国立宪者的原意和“初心”,他们就是要把总统、国会和最高法院相提并论,放在同一个宪法位阶上。当然,美国模式也不是唯一的分权模式,制定成文宪法不见得就一定要否定议会至上,但是它确实提高了法院的地位。在这个意义上,议会立法就不是严格意义上的“至上”了。这并没有什么问题,世界上绝大多数国家都有成文宪法,其中许多国家还是议会制。但不管是议会制还是总统制,如果你真的把成文宪法当回事儿,那就必须要设立一个机构监督宪法实施,无论这个机构是一般的法院还是一个专门的司法机构,这个机构必须有权依据宪法监督议会的立法行为。在这个意义上,司法审查分了议会的权,削弱了议会至上。但是议会和总统、议会和行政之间的分权,那就不一定这样分了。究竟是议会至上还是三权分立,我认为英国模式是不错的,比美国模式好。这个话题大而有争议,且不展开了。
 
我们还可以比较英国和日本。两个都是岛国,规模都不大,还有一个引人注目的共同特点就是两国都采用立宪君主制,或更准确的讲,虚君政体。他们有女王、有天皇,但是都没有实权。当然,这是指明治维新之前和二战之后的日本天皇。中间这段时间,从明治到二战,日本改变了传统体制,结果走向战争,对中国、东亚和它自己都带来了深重灾难。日本战败后,1946-47年“和平宪法”有点像“光荣革命”之后的《权利法案》,明确规定了国民主权和人权保障,同时恢复了虚位天皇制。日本和英国还有一个共同特点,两国都是议会制。虽然“和平宪法”基本上是美国帮它制定的,日本采用了议会制而非总统制。当然,日本有上下两院,也有一部成文宪法,宪法明确规定了司法审查。这些又显示了美国映像,构成日本和英国宪制的最大区别。不过,日本法院理论上能对议会立法进行司法审查,也有几个宪法判例。在这个意义上,法院有权监督众议院的立法行为,但实际上,迄今为止日本司法审查的作用不大,和欧美不能相提并论。这主要是日本政党体制和法官任命机制产生的后果,在此也不展开。总之,英日这两个岛国有很多可比的地方。
 
最后,英国和中国也有可比之处。首先,中国1982年宪法文本和英国议会制很像。英国体制通常被称为“威敏寺体制”。它以英国议会议会所在地Westminster Hall为象征,代表了英国的议会至上政体。中国宪法很相似,因为它也明确规定了人大至上。所以,我们其实是学习借鉴了英国威敏寺体制。但吊诡的是,在宪法的实际效力上,我们又和英国恰好相反。人家是“无宪法有宪政”,咱们则是“有宪法无宪政”,正好成一对角:我们有成文宪法,但这部宪法说了不算;宪法规定根本没有落实,所以没有宪政。在此且不讨论这个伤心的话题,先讨论更开心的话题,那就是英国为何能“无宪法有宪政”。
 
 
三、有点偶然的英国宪政
 
 
英国没有一部成文宪法,但是在什么意义上有“宪政”呢?你看英国公法学家发表的著述,书名不是叫“宪法与行政法”(Constitutional & Administrative Law),就是叫“公法”,公法就是宪法与行政法的合称。因此,英国是有“宪法”这个专业的。他们连成文宪法都没有,怎么还能设宪法这个专业呢?
  
美国是有成文宪法的,美国“宪法”不只是宪法文本,而且还有最高法院的宪法判例、宪法学者的梳理总结等一整套体系。英国因为没有成文宪法,所以英国法院没有美国意义上的宪法判例,不可能依据一部“更高的法”来宣判议会立法无效。但是它又说自己有宪法或宪政,为什么呢?英国虽然没有成文宪法,但是在政治实践过程中,形成了一套宪法原则和惯例。这涉及我下面要说的“社会契约”。
 
由此也可看到,有没有成文宪法也许不是一件那么重要的事情,有没有宪政才是关键问题。“有宪法无宪政”和没宪法一样,甚至不如英国这样没宪法的国家。我们也不是世界上唯一“有宪法无宪政”的国家。如果我没有记错,最早是一位非洲宪法学者提出的这个概念,“有宪法无宪政”在非洲国家十分普遍。所以这不只是“中国特色”,世界上有宪法的国家多,但有宪政的国家少。宪法说了不算,宪法规定得也不错,体现了诸多普世原则,但就是落不到实处。这是相当普遍的现象。英国没有一部成文宪法,却在实践中相当好地落实了宪法基本原则。英国之所以能“无宪法而有宪政”,起点就是1215年的《大宪章》。
 
让我们来看看英国早先的历史。英国在“光荣革命”之前的历史大概可以总结为“两个威廉”、“三个亨利”、“一个约翰”。这两个威廉,第一个当然就是英国开国的这位威廉(William the Conqueror),诺曼征服者;1066年,从诺曼底到英格兰,打败了当地权力非常分散的封建体制,建立了相对集权的中央体制。第二个威廉就是“光荣革命”之后被贵族们请来接管英国的荷兰王子,他娶了英国公主玛丽为妻;领兵进攻英国并把国王赶走后,英国贵族邀请他们二位联合执政,从此奠定了英国立宪君主制的基础。三个亨利下面再交待,最后一个约翰(King John)是个“倒霉蛋”。前面几个国王都是雄才大略、励精图治,到了这个约翰,内外交困、灰头土脸。但是问题要一分为二地看,正是这个“倒霉的约翰”造就了《大宪章》;没有他,就没有《大宪章》。当我们碰到一个好皇帝的时候,整个国家欣欣向荣、蒸蒸日上,大家都很高兴,是不会想到要用制度去约束王权的。只有当这个皇帝变坏,我们才看到完善制度的必要性——这就是约翰的贡献。所以约翰很倒霉,但对整个英国来讲是一件很幸运的事情。
 
刚才提到,威廉一世到英国以后建立了欧洲最早的中央集权。很多人看英国,都对它有一种一厢情愿的认识,好像英国从来是西方最自由的国家。这也和中国教育体制有关,原先我们受“左”的洗脑;改革开放后,某些“自由派”又开始受“右”的洗脑,只要自由,不要秩序,以为英美是他们心目的楷模。实际上,这都是在一个没有政治自由的国家缺乏治国常识的表现。在治国问题上是不能太“浪漫”的,国家是一种“必要的恶”。我们之所以建立国家,是因为我们需要国家,否则我们自己会作恶;国家权力太大之后,它又会作恶,所以要想办法去约束国家权力。中国的极左只看到国家的“必要”,极右只看到国家的“恶”,都是偏离中道的极端。英国政治思想家霍布斯看得非常清楚,人是不可能有绝对自由的;自由永远要受到国家的限制,国家的限制也就是法律的限制。所以他有一句名言:有自由的地方没有法律,有法律的地方没有自由。当然,对这个问题,洛克和他理解的不一样,先不展开。总之,任何一个国家的统治都有它的现实需要。我们不能否定这种现实需要,不能因为我们受到过于严厉的不必要束缚,而否定统治和适度集权的必要性,更不能误以为英国是一个多么分权的国家。事实上,在宪法分类学上,英国从1066年至今,一直是一个中央集权的“单一制”国家,和今天中国一样。
 
英国幸运在什么地方呢?首先,英国中央集权建立了一个高效能的政府,然后在这个集权还没有太过分的时候,就成功对中央王权予以反制。不像中国,从秦朝开始就为后面两千多年大一统奠定了格局,以至于我们今天都跳不出这个格局。英国在集权过度之前就能及时刹车,通过《大宪章》建立对王权的控制,这是它的幸运之处。一个正常、健康的国家总是要在自由和秩序两者之间找到比较妥善的平衡,无论是英国或美国都是这样。不能走极端,只有自由没有秩序,这个日子谁都过不了。实际上,一个极端也就隐含着另一个极端;水深火热、日子过不下去了,就要迫不及待把国家引进来,而一旦把它当作“救星”,不对它进行适当的权力制约,那么它又变成了一种大一统的、权力无边无界的过度集权。这样的国家会一下子从极左变到极右、从极右变成极左,注定极不正常。
 
英国建国后,一开始也同样存在着两种主张:一方主张秩序,要制服由无限自由带来的无序,所以需要权力,主要是国王主导下的中央集权;另一方则主张权力约束和地方自治,反对王权暴政。我们看到,英国早期基本上就在这两极之间某一个地带摇摆。英国从威廉一世开始,首先要建立起强大的中央王权,但之后还要为王权设置边界,要处理中央和地方的关系、政教之间的关系、议会和行政之间的关系。刚才提到,雄才大略的威廉一世从1066年建国开始,统治了二十年,使得英国成为君主相当强大、贵族比较弱小的国家,中央集权已然成型。这其实也奠定了英国近千年的大格局,英国今天仍然是一个中央集权国家。当然,它是很复杂的“单一制”,不仅有英格兰、苏格兰、威尔士和北爱尔兰之间的分权,地方也有相当的地方自治,但性质上仍然是一个中央集权国家。
 
事实上,英国建立了近代欧洲第一个中央集权体制。历史经常是讽刺的,或者说它确实有一种螺旋式上升的复杂发展。我们知道,法国比英国更中央集权,但是那个时候,英国要比法国集权得多。法国是后来居上,以至于到了“朕即国家”的“大独裁者”路易十四,中央集权变得没有边界。法国大革命从帝制变成共和,非但没有改变集权,而且以民主的名义加剧中央集权。和欧洲大陆国家相比,英国的发展总的来说比较平顺,总是在一种摇摆当中前进,而不是从一极走向另一极,从极端的封建分裂走向极端的中央集权。英国的中道政治模式很大程度上来自经验主义的政治实践。其实我们看一个国家的政治实践,就不太容易走极端,因为我们接触的是实际存在的人和事,我们接触的是平庸的常识,不会像深刻的理论那样狂飙突进,想着想着就没谱了,信马由缰、天马行空,一会儿极左、一会儿极右。现实当中,有很多现实问题需要处理,不能走极端,否则马上就会有后果,譬如央地分权就需要有一个妥善的平衡。
 
亨利一世(1100-1135)也是一位雄心勃勃的国王,极大推进了父辈威廉的集权事业。原先朝廷的职位都由贵族担任,到了亨利时代,就由他任命的寒门来担任。在某种意义上,有点像中国的科举。另外,建立国库、设立巡回检查制度、约束地方暴政。没有中央集权是不行的,光有地方自治会“乱”,而且谁能保证地方的官员就一定比中央官员更好呢?尤其在当时没有民主制度的情况下,地方贵族就是“土皇帝”,和中央一样会滥用自己的权力。所以亨利一世的时候,中央集权狂飙突进,有效抑制了地方滥用权力。当然,光是有中央集权更不行,所以中央集权和地方自治必须有一个妥善的平衡。
再到亨利二世,从1154年起又统治了35年。两个亨利加起来,统治长达70年时间;再加早先威廉的20年,中间有几个比较弱的君主,这样就是100多年过去了。历史也是短暂得很,英国的中央政权就这样崛起了。英国朝廷发展成了当时欧洲的财政、行政和司法中心,尤其值得称道的是英国普通法体系。什么叫普通法(common law)?“普通”就是指统一的意思。统一什么?统一英格兰本土的法律——更准确地说,司法判例,因为作为立法机构的议会要好几个世纪之后才发展起来。难道还有哪个国家的法律是不统一的吗?当然,那个年代法国的法律就是高度不统一的,因为说实话,进入中世纪,欧洲也没有清晰的“国家”概念。法国当时是非常封建的,也就是地方割据的,以至于到了18世纪,伏尔泰还在说他在法国旅行,换的法比换的马还多。
 
英国不是这样。从1066年开始,百年时间就建立了高度集权统一的政治体制。王室的权力达到了巅峰,而且获得了法治化。这段时间,英国遇到的基本上都是好皇帝。但好皇帝不常有,下面就碰到了一个不怎么样的国王——理查德一世。早先,国王都在为国家扩张权力,但他也不是白干的。总统靠不住,国王更靠不住。到国家要歇一歇的时候,国王就用打江山得来的权力来为自己服务。理查德一世以为自己王权稳固,就变本加厉地滥用权力,尤其是加重了税负。英国有个税叫十一税,原先只是对某些人群在某些情形下征收,现在变成了一般的义务,英国的贵族们怨声载道。
 
1199年,“倒霉的约翰”就在这种情况下继位了。1199年也是个非同寻常的年份,新世纪的开端,众人期望气象万新。约翰也和我们某位一样,继位时身负众望。原以为他是个开明君主,会比他的父亲更开明,结果很快就大失所望了。为什么失望呢?首先是打仗,打仗不仅要死人,而且成本很高,是很贵很花钱的一件事情。约翰从他上台伊始到1216年去世,一直在跟法国打仗。他为什么要打仗呢?说实话,也不怪他穷兵黩武,他也有难言之隐,因为诺曼人在法国的根据地诺曼底快要丢了。怎么会丢呢?因为它在英吉利海峡对岸。100多年之后,诺曼底的贵族后代基本上把英国看作是外国,英国的诺曼人对故乡也慢慢失去了感觉。所以法国一直看好这快地方,不断地对它蚕食鲸吞,让英国非常不安,就要跟法国打仗。可见这个约翰其实是个“不忘初心,牢记使命”的人,只可惜时运不济、倒行逆施,最后一败涂地。
 
糟糕的是,约翰把仗打败了。1214年,法王路易取得了决定性胜利。同年9月,约翰打不下去了,被迫签订了5年停战协定。10月,倒霉的约翰垂头丧气回国,但回国已经有点晚了,因为国内的贵族们乘着他在国外打仗的这段时间完成了密谋。1215年1月,贵族和国王的支持者在伦敦相互交战,到复活节停火。贵族率军南下,伦敦市民们纷纷开门。约翰看到大势已去,表示愿意和谈,并接受贵族们提出的要求,也就是要恢复英国以前的法律和自由。6月初,双方在兰尼米德这片草原上进行了为期一周的谈判。6月15日是一个具有历史意义的日子,双方签署了48条协议。19日,最终完成了《大宪章》的签署。可以想象得出当年这个场景:一边是贵族们前呼后拥,从山坡上缓缓下来,另外一边是国王孤家寡人和他少数的支持者;两兵相遇,双方不怀好意打量一眼、寒暄一阵,就坐下来签约了。
 
我去年还去过泰晤士河畔兰尼米德那个地方,很不好找。手机地图搜索了很久,结果还是走错了。问了当地很多人,都没听说过,顿时觉得有点悲凉:那么重要的地方,你们老祖宗的荣耀啊!不仅决定了英国文明的走向,而且极大影响了世界文明的走向。但是在英国本土却了无声息,相当荒凉。绕了一大圈,家人们都不耐烦了,说我要把他们带到沟里去。最后,总算遇到一对上了年纪的老夫妻,用手一指,台阶下面就是。下去一看,果然有个亭子。这亭子还不是英国人修的,而是美国律师协会1986年(如果我没记错的话)才捐款修建的。也许恰如丘吉尔所说,伟大的民族是从不感恩的,不仅对人不感恩——二战结束就没他的事了,而且对决定历史的里程碑《大宪章》也不感恩,甚至不知道它的存在。
 
 
四、教会的中坚作用
 
 
 
 张千帆:英国为何“无宪法有宪政”——从《大宪章》谈起
 
 
 
我们从上面这张图片上看到:国王坐在右边签字,左边贵族在虎视眈眈地看着他。还有一位站在中间,戴着一个十字架。这位是谁?他是英国大主教。非常有意思的是,教会在整个英国史上发挥了非常重要的作用。1688年的“光荣革命”,直接原因就是宗教冲突引发的。1215年《大宪章》和宗教没有直接的关系,而是因为英国贵族不愿意接受约翰的残暴统治——各种贵族义务、苛捐杂税,最后忍无可忍、揭竿而起。但是教会在其中发挥了极为重要的间接作用。没有教会,恐怕不会有这部英国《大宪章》。
 
我们都是在无神论这个大的教育背景下成长起来的,很难体会到宗教的作用。当然,这也有好处,国家会比较世俗。宗教当然不是什么绝对真理,但是宗教尤其是一个相对独立的教会组织会对这个国家的政治发挥非常关键的作用。世界文明史上,最早也是最关键的分权制衡就是来自政教分离。如果教会不独立,政教合一,那就是一个极权国家。即便在一个没有宗教的世俗国家,哪怕是一个无神论的国家——实际上无神论也是消极意义上的“宗教”,也完全可能产生意识形态和政权合一的极权统治。上面提到,生长在极权国家的人会不断地接受左的或右的洗脑。对此,我们要有非常清醒的认识,譬如要认识到当代文明的基础是政教分离,既不能忽视宗教的作用,也不能过于夸大宗教的作用,把某种教义当作绝对真理。这回到中世纪去了。没有宗教或否定宗教行不行呢?那其实和政教合一是一回事。事实上,我们这个极权体制的形成和我们自古以来缺乏一种独立的宗教有很大的关系,这里先不展开了。
 
宗教在英国《大宪章》时代发挥了什么作用?为什么说没有教会,《大宪章》很可能不会产生?这里必须牵扯进“第三者”——罗马教皇和天主教会。我们知道,十三世纪仍然是“黑暗的中世纪”,天主教一统天下,在各国都设置了大主教职位。约翰当政时期,朝廷和教廷的关系恶化,朝廷和教廷的友好关系终结了,这对于英国来说意义非常重大。1205年,英国大主教去世,各方势力都想让自己的人继任大主教,因为这个职位非常重要。约翰想要他手下一个叫格雷的人做大主教,但是这位格雷不被英国的主教们认可。主教们悄悄的选了自己的人,但是不小心走漏了风声,国王一看主教们在密谋,就对他们施加压力,迫使他们选举了格雷。假如英国就是一个绝对的主权国家,那么到此为止,可它实际上不是。任命英国大主教,国王的意见固然重要,但关键是要经过罗马教皇的准许。而当时的罗马教皇英诺森三世接连否决英国两次提出的人选,为什么?因为他老人家有自己的人,他任命了一个当时英国鲜为人知的朗顿(Stephen Langton)为大主教。
 
虽然双方达成和解,约翰也很无奈,但是他心里肯定很窝火,所以就开始攻击教皇,关系彻底闹掰了。1211年,教皇索性免去了英国人忠于约翰的义务。这可是了不得的,相当于是在鼓励英国人民发动叛乱,推翻自己的国王。说实话,在一般情况下,国王、教皇官官相护。教皇要护着一点国王,因为他也要依附国王来维护这个国家的宗教秩序。二者之间一定要搞好关系,否则就会两败俱伤。所以教皇会竭力维护臣民对国王的忠诚义务,否则形同叛乱,是杀头之罪,但教皇已忍无可忍,以至于免除了英国人对约翰的忠诚义务——也就是说,你们可以起来造反,推翻昏君暴君,我免除你们的罪责,可见他们的关系恶化到什么程度。约翰当然也不是什么善茬,毫不示弱,充公了英国教会的财产,英国的主教们当了冤大头。教皇雷霆震怒,1213年1月正式的取消了约翰的教籍。什么意思呢?那就是你不再是基督徒了,死后得下地狱。这就更非同小可了,因为在那个时候,英国如果不是100%也是99%的基督教徒,都忠诚罗马教会(英国和教会一刀两断是三四百年之后的事了)。现在你这个人被教皇开除教籍,居然还是国王,这比总书记被开除党籍还要严重。
 
约翰一下子就没底气了,原先还踌躇满志、高枕无忧,现在真变成了孤家寡人。5月,国王终于服软,接受了教皇的所有条件,任命朗顿作为英国的大主教,恢复了英国教会的地位和财产;两天之后,还下罪己诏,自动地辞去了英格兰和爱尔兰国王的职位,以示谢罪,可见问题的严重程度。所以说,国王和教皇之间发生了一场权力斗争,结果国王彻底失败。
 
到了7月份,朗顿来英国就任。两边关系缓和,教皇也给面子,国王再次登基。这个问题就暂时告一段落,约翰的危机似乎又解除了,但他心里还是放不下失去的那片故土——诺曼底,因此还要打仗,穷兵黩武就得横征暴敛,没钱就打不了仗。8月,英国北方叛乱,约翰前去平乱。趁约翰去讨伐北方,南方贵族又开始聚集谋反。
 
据说朗顿大主教在伦敦的圣保罗教堂召集贵族,并向他们说明:教皇之所以赦免了国王的罪过,是以他的良好治理为前提,所以在某种意义上,这是一个契约,不是一个无条件的承诺。
 
他当场向他们展示了亨利一世的登基誓言,说这位伟大的国王在登基的时候,是向贵族们宣过誓的。朗顿把登基的誓言展示给这些贵族们,当面对他们说:“如果你们愿意,你们可以恢复你们长期失去的自由,至其一尘不染的状态。”贵族们当着在场的所有人宣誓:“如果需要,愿为自由战斗至死。”英国贵族和大主教之间的对话当时就产生了一个君子约定,相当于精英之间的一个契约或攻守同盟。
 
一个多么美好的故事!可惜讲座之后,北大专攻法制史的同事贺卫方教授提醒我,这段故事的真实性存疑。我自己也考证了一下,确实只是一位历史学者并非亲眼所见的孤证,添油加醋的可能性居多,甚至不排除子虚乌有、完全杜撰的可能。但是即便没有直接组织或参与贵族的密谋,朗顿对于《大宪章》的作用是无可置疑的。兰尼米德签约,他就在现场,并且在贵族定稿之后,直接修改过《大宪章》的文本,尤其是第一条应该出自他的手笔。
 
《大宪章》相当于是一个停战协定,由敌对双方谈判后同意签字,在本质上是精英之间达成的一个契约。之所以能够以契约方式解决争端,取决于几个因素。首先,英国贵族们面对国王的强权不怂,彼此之间也不背信弃义,没有人为了巴结国王,去告状、告密。大家团结一致、荣辱与共,形成合力迫使国王让步,不达目的誓不罢休。其次,贵族们有修养、不越位,没有非分之想。不像中国,只要“团团伙伙”就是“谋反”,而一旦谋反就没底线、你死我活,不择手段推翻皇帝,然后自己取而代之,绝没有坐下来谈判的道理。中国历代起义都是不折不扣的叛乱,陈胜、吴广、刘邦、项羽……任何打江山、坐江山的这些人都是窃国大盗。项羽还好一点,只想做一个什么“西楚霸王”,不想包揽天下。刘邦就更没底线了,但中国政治就是一场无底线竞赛,最没底线的最后胜出。
 
也许受宗教影响,英国贵族和中国是云泥之别,自律、不篡位、不僭越。他们想到的不是杀了国王,然后彼此分赃,而是要和国王签订一项契约,把事理说清楚。而这个契约是不过分的,因为他们要的无非是恢复传统的法律和自由;这些权利和自由是他们以前就享有的,现在被你剥夺了,一定要恢复过来,仅此而已。
 
于是,1215年6月15号,约翰和贵族推选的“25名男爵”签署了《大宪章》的主要条款。所谓“男爵”,也不完全是严格意义上的男爵,而是一个统称,其中也有其它爵位的贵族,简称为“25男爵”。双方原来就没有好感,签完宪章以后也仍然互不信任。有的认为,约翰一开始就没什么诚意,只是虚以逶迤、养精蓄锐,以契约换时间。有的则认为约翰可能前两个月还是有诚意的,只是男爵自己背信弃义,没有答应约翰的某些条件之后,约翰才毁约。在谈判时,贵族们要求约翰显示诚意,在当年8月之前由他们控制伦敦。作为回应,约翰要求贵族把恢复对国王的忠诚这一条写在《大宪章》上面,但是遭到了贵族的拒绝。总之,双方有些摩擦。
 
不论如何,《大宪章》印泥未干,约翰就提请教皇取消盟约,指责盟约是非法的。这一次,教皇再次站在了国王这一边,指责抵抗国王的贵族们“迫害”约翰并“觊觎篡夺其作为教廷封地的王国”,并取消了他们的教籍。原先对约翰的惩罚,现在被按到这些贵族的头上。约翰似乎获得了一些底气,因为教皇又回来支持他了,仍然是他最好的朋友。当然,贵族也不买账,内战重新开始。有一度,约翰还占了上风。11月底,约翰占领了重要的罗切斯特城堡。贵族们眼看着顶不住了,于是向法国求援,甚至以王位相许,请求法国王子路易率领7000名法军进入英格兰。这个时候,教皇下旨让法王菲利普召回路易王子,要求他不得侵犯自己的“封地”,因为英国在名义上是教皇的封地。但是法王不服,正好利用这个机会挫一搓教皇的权威;教皇也很窝火,一怒之下取消了路易的教籍。所以我们看到,教皇和各国的君主之间有一种很有意思的权力斗争,表明政教有一定程度的分权。国王可以不服教皇,教皇也可以做一些事情,至少让国王感到很不舒服,甚至危及他的统治地位。
 
最后,人算不如天算。1216年10月,约翰本来可能要大功告成的时候,却功亏一篑,病死了。约翰这一死,真是死得其时。我记得贺卫方老师曾说过,有的人就是伟大,不服不行,连死都能扭转乾坤,因为他一死,老百姓就什么都有了,饭也吃饱了。约翰一死,英国《大宪章》就存活下来了。否则还真不好说,《大宪章》可能签署第二年就被扔到垃圾堆去了,以后什么时候再有就不知猴年马月;贵族们被消灭殆尽,中央集权高歌猛进。说不定英国就不再是英国,也许在十三世纪就成了法国甚至中国。
 
在某种意义上,《大宪章》是一个偶然的历史产物。当然,如果说在世界上有任何地方能够通过这样一部宪章,英国无疑可能性最大,但是任何历史事件都没有什么必然保障。从贵族和约翰斗争的这段历史就看得很清楚。到他的孩子亨利继位,《大宪章》才确立下来。前面说到,英国历史上有三个伟大的亨利,前面两个是雄才大略的一世二世,第三个就是约翰的孩子亨利三世。继位的时候,他还是个9岁的孩子,需要“垂帘听政”。当时的摄政王马歇尔趁机修改了《大宪章》,把语气稍微修改软化了一些,使得国内的反对派和保皇党都能够支持。贵族也不是铁板一块,全都反对国王,对国王忠心耿耿的也大有人在,如果语气其过于激进,他们也不会接受。因此,新版《大宪章》是各方妥协的产物,然后以亨利的名义承认《大宪章》作为国王的执政基础。1225年,亨利成年后正式即位,再度修改宪章,这才是现代版的《大宪章》。我们现在看到的还不是1215年,而是1225年的《大宪章》,严格来说是它的第四版。
 
《大宪章》这么重要,却并不是一部宪法。直到今天,也没有哪一部法一定要服从《大宪章》。即便英国议会哪天说要撤销《大宪章》,也没什么能阻止它这么做。这是英国保留至今的“议会至上”的特色。只是八百年过来,它就这么过来了,已经成了英国法的不朽遗产。《大宪章》一共有63条,其中已有很多的条款被后来的法律所修改,失去了法律效力,但是有几条至今仍然有效。其中最突出的是第一条,规定了“英国的教会是自由的”——换言之,教会是不受国王控制的。上面提到,这一条无论就内容还是地位,都体现了教会尤其是朗顿大主教在《大宪章》形成过程中的影响。第二条规定了英国“自由人的自由”,其它条款还有征税必须经过国民同意、监禁必须经由法律、不得出售剥夺或延误正义、财产或自由的剥夺必须经由正当程序、国王不得违宪等。正当程序条款被直接移植到美国的第五修正案。
 
这些条款自1215年至今依然有效,这是多么了不起的宪政成就!在中国,绝对做不到,甚至今天还没做到人家八百年前规定的那些东西。譬如公民失去自由可以不经过刑法(譬如行政拘留),甚至可以不经过任何法律,就把你关上几个月甚至更长时间,美其名曰“留置”、“双规”各种说法,或根本用不着什么说法。武汉疫情期间,“公民记者”陈秋实、方斌失踪好几个月,没有任何手续,至今连家人都没得到任何说法,人说没就没了。说中国法治比英国落后八百年,可能有点夸张,但根源是有一个根本问题没有解决;如果不解决,落后上个两千年也不是不可能的。
 
 
五、宪章与契约
 
 
《大宪章》虽然没有宪法的名义,但实际上发挥作用比宪法还要大。为什么《大宪章》在英国能够成功?前面已经提到,《大宪章》的成功是相当偶然的,但偶然中也有必然。我总结一下它的成功要素,大至有以下三个。第一个是偶然因素,那就是对外战败;用我们的话讲,就是“丧权辱国”,对外仗打败了。这样一来,政权的合法性就会受到极大的削弱。你想,如果打赢了的话会怎么样?国王的合法性会爆棚。国内就没有人能够挑战他的权威。而且打赢了以后,他也不需要再去打,也就没有后来的苛捐杂税、横征暴敛这些促发叛乱的问题。贵族们会觉得日子过得还挺好,甚至还要分享一下大英帝国的荣耀,更说不上会用《大宪章》来约束国王的权力。只要励精图治、蒸蒸日上,任何国王的权力都是很难约束的。
 
第二是是教会的约束,这是一个至关重要的制度性约束。当时包括英国在内的欧洲各国,都形成王权和教权的分立,导致王权实际上并非至上。在国王和贵族等其它社会阶层发生矛盾的时候,教会就可以成为一个权力的平衡者或调停者、仲裁者,发挥非常重要的作用。如果说这个组织不存在,或者说政教高度合一,或者像我们儒家那样只是政权的附庸,那么欧洲各国包括英国的王权很容易蜕变成一种绝对权力,变成“王权至上”,譬如西班牙就是那样的体制。中国没有宗教,但实际上也发展成类似的体制。关键问题不在于儒家教义好不好,它可以很好,而在于它是否独立,有没有自己在组织上、制度上的独立性。历史上,儒家没有自己的组织和制度独立性,变成了皇权的一种依附。所以从秦朝统一六国开始,我们就一直处在权力失衡的大一统状态。在某种意义上,从那个时候开始即已经埋下了极权主义的基因。极权的种子早已存在,只不过是过了两千多年之后,才在适合它的土壤和环境下生长出来而已。
 
最后是最重要的,就是贵族的契约精神。这是一个关键的制度和文化因素——不光是制度,也有文化因素。换言之,“25男爵”所代表的英国贵族这波人能够相互信任,超越孤立个体狭隘理性的“囚徒困境”,防止自己被各个击破,最后全部沦为王权的奴隶。“囚徒困境”是无所不在的,因为不要说中国,即使拿当时的英国来说,国王的权力可以说是如日中天。建国一个世纪以后,中央集权已基本形成,所以跟国王合作永远是有利可图的。如果我们两个是贵族,我和你密谋谈好,要共同抵抗王权,因为光靠一个人的力量不够;然后你在背后就去告了我的御状,国王奖励你、惩罚我,这样不是对你很有利吗?如果我们都这样想,我们就陷入到“囚徒困境”当中。
 
幸好英国贵族人数不多,因而有希望成功。需要合作的人越多,越容易陷入“囚徒困境”。这是因为我们选择某种行为策略会产生后果,而后果取决于其他人的行为策略。简单地讲,就是“合作”和“不合作”。以英国贵族为例,“合作”就是咱们说好要抵抗王权;“不合作”就是背信弃义、背后告状,递条子、捅刀子。如果我们相互之间缺乏信任,不论别人怎么选择,不合作对于我来说都是更有利可图的,那么每个人都会为了自己的利益选择不合作,最后每个人都活得很惨。人多的时候,尤其容易发生背信弃义,因为我一个人的合作救不了那么多人不合作;其他人合作,也不少我一个人合作,我完全可以避风险、“搭便车”。
 
譬如说,我们有好几千好几万的人要说一件事情。国内的人现在都有言论受限的切身体会,封群、封号甚至“喝茶”。言论是有风险的,而言论的主体很多。在没有言论自由的环境下,我们去争取言论自由有风险。如果你们大家都想去争取,那我可以不争取,坐享其成;如果你们大家都不争取,就光是我在那喊两句,喊完以后我也完了,言论自由还是来不了。换言之,无论你们是否站起来争取言论自由,我不出来说话对我来说永远是风险更小、更加有利的。问题是,我们大家都这样想,你也这样想,我也这样想,最后“竟无一人是男儿”,没有一个人会站出来争取言论自由,言论自由当然也就不会降临中国。不只是言论自由,其它的维权、选举、维护法治,都存在类似的“囚徒困境”。我最近看到徐昕老师在包头法院代理案件的时候被很多法警围困,肯定受到了刁难。但要是法律人遇到风险就退缩,那么法治也永远不会到来。一样的道理。
 
要超脱“囚徒困境”,人民相互之间必须要建立信任。这也是为什么贵族制有它的好处,因为在一个很大的公民群体当中建立互信是很难的。在一个小群体,大家都很熟,经常在一起喝酒、喝咖啡,这样大家相互之间会有一种情感,也会有一种监督:如果这小子怂了,大家都会鄙视他,以后没人跟他玩了。在此基础上,建立互信会比较容易。可贵的是,英国贵族当时建立了这样的相互信任。在签署《大宪章》这个大契约(其实也是国王和贵族之间的小契约)之前,他们之间就有一个攻守同盟。《大宪章》就这样产生了。
 
比较中国的朝廷,大臣之间从来不存在这种信任,横向契约从来不存在。从秦朝统一六国开始,六国不能团结抗秦所谓的“合纵连横”,最后合纵战胜连横,六国被各个击破。建立了大一统以后,皇权永远可以联合一方去打击另一方,因而永远得不到制约。我们就拿今天中国的左右来讲,左派攻击右派,右派攻击左派,双方都希望得到国家的承认。国家帮助打击右派,左派兴高采烈;打击左派,右派欢欣鼓舞。国家无论打左还是打右,它永远都是左右逢源,永远会有大量的支持者,永远不会落到像约翰那样变成人人喊打的落水狗。这样,它在打压言论的时候,还要顾忌什么?
 
这种状态不仅是集权制度造成的,也和我们长期以来的观念有关。对儒家文化,我一直认为要为一分为二,在此先不展开,但是儒家有一个很致命的东西,那就是看重秩序。刚才说英国早期,自由和秩序必须有一个健康的平衡。无论过分倒向哪一边,最后都不会健康。中国传统对秩序的过分倚重就是一种失衡。虽然孟子有所谓“君轻民贵”这套学说,但是为了一统秩序,什么都可以失去,自由根本不在天平的另一边。最后,实际上是皇权高于一切,神圣不可侵犯。任何横向联合都是谋反,大逆不道,那是灭九族的罪,所以任何人都不敢联盟。今天也是一样,连中央领导都是不能串门的,不然就是搞“团团伙伙”、拉帮结派,那样就犯了大忌。
 
英国根本没有那么多顾忌,所以理论经常是在帮倒忙。英国当时没有什么理论,但是它通过自由实践和相对均衡的社会权力结构,在宪政的十字路口上把基本底线守住了,最后《大宪章》一锤定音。忠君、谋反、大逆不道这套东西有什么呢?国王当然是可以背叛的,甚至可以里通外国,把法国的君主请进来。“光荣革命”不也这样吗?把荷兰的王子请到英国来当国王,开启了英国的虚君立宪传统。这样的事在欧洲是不鲜见的。另外,教会也限制了王权至上;国王只是世俗君主,国王之上还有上帝。所以他不是至高无上的。如果实现了政教分离,那么至少教会可以不受干涉。从英国《大宪章》中已经看到教会发挥的作用。
 
 
六、如何制约“最高权力”
 
 
在社会契约的对立面,还有一个关键问题,那就是如何制约一个国家的“最高权力”。《大宪章》的关键意义即在于用英国的契约传统,解决了当时困扰英国的最高权力问题。英国封建制是建立在契约之上的一套秩序,当时的英国社会就是一连串的契约关系。谁和谁的契约?当然是封主和封臣之间的契约,分成很多个等级,国王是最高的封主。国王和大贵族、大主教之间是一种契约关系,大主教和主教之间、大贵族和贵族之间是一种契约关系,小贵族和市民、农民之间又是一种契约关系。所以国家就是由封主和封臣之间的一连串契约连接而成。即便国王权力在这个国家最大、最高,他也有义务要尊重契约,尊重契约权利并履行契约义务。
 
《大宪章》的根本就在于解决了我们至今尚未解决的最高权力问题,用英国人当时的话说,就是“没有封主的封主”(lordless lord)问题。上面提到,当时英国是一连串的契约连接起来的等级社会;也就是说,任何一个人都是下面有封臣、上面有封主。唯独国王只有封臣,没有封主。当然,严格意义上,他也不是没人管;我们看到,教皇就可以管一管,但这不是一个正式的契约关系。这样一来,就有权力失衡的危险,没有人来监督国王。如果你是这个国家的总封主,你的权力总是要比别人的大,别人没有办法来迫使你履行自己的义务、尊重别人的权利。
 
怎么办?《大宪章》的解决方式是“安全条款”,也就是明确在《大宪章》的第一版中规定:如果国王或国王的侍从以任何方式侵犯任何人或破坏和平与安全,那么如按正当程序提出的诉求在40天内仍然得不到救济,将提交25男爵来处理。25男爵相当于临时委员会,作为集体约束国王的“临时封主”。这样,国王就不再是一个没有“封主的封主”了,他也有封主。当然,到了再次签署宪章时,亨利三世省略了这个条款。我们现在看到的这个版本没有这一条,但是1215年的版本是有的。因此,这个问题实际上没有得到彻底解决。《大宪章》显然不是英国宪政的终点,而只是英国宪政的起点。
 
要比较彻底地解决“没有封主的封主”问题,还得等到“光荣革命” 确立议会至上原则。即使那样,国王的行政权也仍然是相当大的。又过了两三百年,到了一战前后才基本上把封主的权力给废掉。现在英国国王只是名誉上的封主,虽然名誉上至高无上,实际上什么也做不了,所以也做不了坏事。这是英国的终极解决方案,但是《大宪章》当时远没有解决这个问题。
 
   “最高权力”完全是一个概念误区,真正意义上的最高权力根本不应该存在。因为我们作为活在地球上的平凡的人,没有资格行使这种权力;真正的最高权力——至高无上、不受约束的权力——只有上帝才能行使,因为上帝不会犯错。任何的凡人都会犯错,都会有自己的利益,都会以权谋私,凭什么他能行使最高权力?任何人、任何机构、任何党派甚至“人民自己”都不是上帝,因而都不配拥有最高权力。一旦以“最高权力”的名号去行使统治权,这种权力必然会受到严重滥用。在这个问题上,我们需要认真反思。中外历史上,已经有太多太多的教训。只要存在实际上的最高权力,连法治都不可能实现。因为你怎么能让法去约束不可约束的“最高权力”?在定义上,它就是不可约束的。最高权力下放了以后,下放到部门、下方到地方“土皇帝”,这些人就成了实际上的最高权力,为非作歹、无法无天、贻害无穷,没有任何法律能够制约他们的权力。 
 
因此,“最高权力”这个理论误区就剩下一个作用:鼓励和纵容作恶,鼓励和纵容权力滥用。中国1982年宪法第2条规定:“一切权力属于人民。”规定得不错,这样的条款在很多国家宪法都有。但是这句话只能说说而已,不能当真,因为“人民”也会滥用权力。尤其是“人民”是谁?是你还是我?“人民”怎样行使权力?这种整体概念很容易被一个人、机构或组织顶替,以“人民”的名义来行使不受控制的最高权力,这就太可怕了。
 
“最高权力”的唯一合适去处就是束之高阁,就是1689年的“光荣革命”,也就是虚君/立宪/共和,没有别的出路。当然,英国现在的下议院和中国的全国人大类似,都享有“最高权力”。如果说英国的“最高权力”也产生一点不良后果,那就是英国没有成文宪法和司法审查。因为议会享有实际上的最高权力,法院就不可能约束它的立法行为,因为没有比普通立法更高的成文宪法。我认为这一点是需要改进的,包括德沃金在内的很多法学家也都主张英国应该有一部宪法,法院应该有权审查议会立法。这些都是很好的建议,但是目前被议会至上阻碍了。当然,后果也不是那么严重,议会本身是利益多元的主体,很难真正实现“至上”;即使实现,危害也相对最小,毕竟是多数人受益。
 
再来对比一下我们自己,为什么别人是“无宪法有宪政”,而我们是“有宪法无宪政”,正好跟它来个对角?这就是因为我们刚才一再强调的,权力过于集中。虽然中国历史上所谓“分久必合、合久必分”,但是政治制度、社会结构和意识形态确实形成了金观涛教授所说的“超稳定结构”,形成了一种“大一统”秩序。在这个其中,意识形态发挥了不可忽视的作用。我们之所以一直尊崇一种最高权力,归根结底是因为我们害怕天下大乱。俗话说,“一山不容二虎”;否则,打架的话,到底听谁的?所以我们的传统——儒家也好,法家也好,墨家也好,都主张最高权力,造成皇权至高无上、不可挑战,不可能受到法律上的有效约束。也不可能像英国和美国那样,通过政治斗争实现制度上的创新。
 
我们看到,《大宪章》就是一个伟大的制度创新。这种制度创新是怎么来的?它来自于国王和贵族之间的政治斗争。这个政治斗争之所以能够展开,正是因为英国实际上不承认国王有最高权力。他确实也不是最高权力,看教皇把约翰整得多惨啊!因此,国王和贵族之间的地位是相对平等的,国王权力不能够绝对地压倒贵族。不像咱们的朝廷,下面的大臣要挑战皇帝的权威,那是犯上作乱,不得了的。在权力严重失衡的制度下,不可能有真正的制度产生。《大宪章》就是在权力相对平等的政治斗争和妥协的基础上形成的一部契约。在我们的集权格局下,永远只能看到宫廷内部斗争,大家都要拼命兜售自己的主张,让皇帝接受,从来不存在一个我和你、甲和乙、左和右之间产生一个契约;即便签了字,也不算数,事后完全可以撕毁协议。我们从来不能像英国《大宪章》那样,先在我们中间说好,你能接受,我也能接受,然后让国王接受。英国《大宪章》就是这么来的。但我们从来没有这样的一种动力学,从来没有这样的斗争、谈判、妥协、履约过程。真可谓“差之毫厘,失之千里”,我们对最高权力这个问题的认知失误,造成了我们自秦制以来的大一统这么两千多年来,从来没有形成英国这样的一个逐级的契约系统。所以真正意义的社会契约一直没有能够形成。这就是中国和英国之间的本质区别。
 
因此,中国“有宪法无宪政”,英国“无宪法有宪政”,关键在于社会契约是否存在。如果没有形成社会契约,你有成文宪法也没有用,因为公民之间不存在相互信任,人人都身陷彼此不合作甚至相互构陷的“囚徒困境”,光有一部宪法有什么用呢?宪政原则要靠我们站起来捍卫,通过斗争来维护我们的权利。英国没有成文宪法,但是从《大宪章》开始,逐渐形成了一套社会契约,而且契约的范围越来越大。《大宪章》至多是一个小契约,是英国国王和大贵族之间的契约。他和代表贵族的25男爵在这部契约上签字,不是普遍意义的社会契约,但它是一个良好的开始。从那时候起,契约的范围就在逐步扩大,因为双方都要去扩大自己的联盟,要去争取自己的选民。大贵族在和国王斗争过程当中,要争取小贵族的支持;国王在和贵族斗争过程当中,要争取平民的支持……在这个过程当中,更广泛的社会契约就形成了。
 
既然有了社会契约,有没有成文宪法就不是一件那么重要的事情。当然,我还是认为有成文宪法更好,因为宪法就是社会契约的一个摹本。如果把社会契约里面的基本原则明确地写下来,再通过制度加以落实,而且不能随便改变,那么它就会给国家带来很大的便利。但这不是根本性的,根本在于你这个国家有没有社会契约。英国恰恰是因为有了社会契约,因而可以无宪法而有宪政。
 
作者注:本文是我在“共识沙龙”同名讲座的文字稿。贺卫方教授及其高足王栋博士对讲座内容的若干细节有所指正,特别感谢!
 

(本文仅仅代表作者的独立意见) 
 
 
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未经允许不得转载:律师中国 » 张千帆:英国为何“无宪法有宪政”——从《大宪章》谈起

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    Cash Advance1个月前 (03-04)回复
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    indir1个月前 (03-04)回复
  39. #39

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    shell1个月前 (03-04)回复
  40. #40

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    Php1个月前 (03-04)回复
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  46. #46

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