영문목차
A Note about the Author=xv
Foreword : The Five Steps of Legislative Drafting & Other Matters=xvii
The Story Behind This Manual=xvii
What Is Professional Legislative Drafting?=xviii
What Are the Five Key Steps?=xviii
What Makes a Good Legislative Drafter?=xix
The Purpose of This Manual=xx
A Note on Methodology=xxi
Application to Other Legal Systems=xxi
Chapter One How to Achieve the Intended Legal Effect=3
Step One "Legalize!"=3
In Search of the Elusive Legal Effect=3
Part I. Establishing Legal Relationships=4
What Do Laws Do, Really?=4
Subpart A. Choosing the Subject of a Sentence=4
Seven Rules=4
Rule No. 1. Never Mention "The Government"!=4
Rule No. 2. Name Officials, Not Bureaucracies=4
Rule No. 3. Name Statutory Officials=5
Rule No. 4. Name Agency Heads=5
Rule No. 5. Avoid Naming the President, Usually=6
Rule No. 6. Name Congress, the Statute, or the Action Itself in Certain Circumstances=7
Rule No. 7. Treat Multiple Subjects Specially=7
Subpart B. Choosing the Mood and Tense of Verbs=7
Introduction=7
Binding Verbs=8
Mandatory or Directory Language=8
Authorizing or Delegatory Language=10
Entitlement Language=12
Self-Executing Language=13
"Housekeeping" Language=13
Nonbinding Verbs=15
Congressional Findings ; Preambular Language=15
Hortatory Language=15
Verbs to Avoid=16
Part II. Enforcing the Law=17
When Is an Enforcement Provision Necessary?=17
Menu of Enforcement Options=18
Enforcement Options=18
Criminal Penalties=18
Civil Penalties=21
Funding "Cut-Offs"=22
Earmarks=23
Ultra Vires Violations=24
Judicial Enforcement=24
Part III. Respecting the Constitution=26
Introduction=26
The Big Three=27
Five Constitutional Traps=28
Trap No. 1. Legislative "Encroachments"=28
Trap No. 2. Violations of the Nondelegation Doctrine=29
Trap No. 3. Unconstitutional Legislative Vetoes=29
Trap No. 4. Violations of the Appointments Clause=30
Trap No. 5. Violations of Federalism=31
Test Your "Legalizing" Skills=32
Drafting Exercise No. 1=32
Chapter Two How to Choose the Right Legislative Vehicle=33
Step Two "Formalize!"=33
Part I. About Bills and Resolutions=33
What Is Legislation?=33
Types of Legislative Vehicles, Generally=34
Bills=35
Joint Resolutions=38
Concurrent Resolutions=40
"Simple" (One-House) Resolutions=42
Matching Language to Legislative Forms=44
Part II. Legislative Amendments=45
Introduction=45
Elements of the Legislative Amendment Form=46
Types of Legislative Amendments=47
"Clean Up" Amendments=49
Impact of Budgetary Scoring on Legislative Amendments=49
Converting a Bill to a Legislative Amendment=50
Part III. The Legislative Veto=50
INS v. Chadha=50
Legacy of the Chadha Decision=52
Part IV. Expedited ("Fast Track") Procedures=54
What Are Expedited Procedures?=54
Frameworks for Using Expedited Procedures=55
Elements of Expedited Procedures=56
Model Expedited Procedures=58
Test Your "Formalizing" Skills=60
Drafting Exercise No. 2-A=60
Drafting Exercise No. 2-B=60
Drafting Exercise No. 2-C=61
Chapter Three How to Relate to Existing Law=63
Step Three "Integrate!"=63
Part I. Three Approaches=63
Introduction=63
Statutory Construction=64
Overriding Existing Law=65
Amending Existing Law=66
What Is the Role of Freestanding Language?=67
Part II. Statutory Amendments=68
Seven Basic Rules=68
Rule No. 1. Make the Law the Subject of the Sentence=68
Rule No. 2. Amend the "True" Version of the Law=68
Rule No. 3. Identify the Target Law with Specificity=68
Rule No. 4. Choose the Appropriate Method of Amending=69
Rule No. 5. Amend Punctuation and Connectors, if Necessary=69
Rule No. 6. Redesignate Provisions of Existing Law, if Necessary=70
Rule No. 7. Refer to the Amended Law in the Long Title=70
"Cut and Bite" Amendments=70
"Restatement" Amendments=71
Statutory Amendments vs. Repeals=72
Statutory Amendments vs. Legislative Amendments=73
"Execution" of Statutory Amendments=74
Part III. "Clean Up" ; Transitions ; Effective Dates=75
Introduction=75
"Clean Up"=75
In General=75
Technical, Clerical, and Conforming Amendments=75
References in Law=77
Transition Provisions=78
Effective Dates=79
Part IV. Finding the "True" Law to Amend=81
Introduction=81
General Principle=81
Public Laws and Acts of Congress=81
The Statutes at Large=83
The United States Code=83
How the Code Differs from Acts of Congress=85
Split Legal Status of the Code=86
Value of Prima Facie Law Titles for Finding Acts of Congress=90
Test Your "Integrating" Skills=91
Drafting Exercise No. 3-A=91
Drafting Exercise No. 3-B=91
Chapter Four How to Organize the Legislative Text=93
Step Four "Organize!"=93
Legislative Organization, Generally=93
Part I. Organizing a Bill=94
Subpart A. "Simple Bills"=94
Organizing a "Simple Bill"=94
Short Title=94
Congressional Findings=96
Purpose=97
Definitions=97
General Authority=99
Limitations=100
Administrative Provisions=101
Reporting Requirements=101
Special Audits=102
"Powers" Provisions, Generally=103
"Powers" Provisions : The Appointment and Compensation of Government Personnel=104
Sense of Congress=105
Authorization of Appropriations=106
Effective Dates and Termination Dates=108
Subpart B. "Complex Bills"=109
Organizing a "Complex Bill"=109
Part II. Organizing a Section=112
Introduction=112
Subdividing a Section=112
"Tax Style"=114
A Tale of Three Sections=115
Hypothetical No. 1. A Single Sentence Section with Grammatical Clauses=115
Hypothetical No. 2. A Multi-Sentence Section with No Grammatical Clauses=115
Hypothetical No. 3. A Hybrid Section Combining Hypothetical Nos. 1 and 2=117
The Confusion of Sections Making Statutory Amendments=118
Making Connections Within a Section=119
"Connector" Style=119
"List" Style=120
Part III. Cross-References=121
What Is a Cross-Reference?=121
Why Make a Cross-Reference?=121
Rules for Drafting Cross-References=121
Definitions as Alternatives to Cross-References=122
Test Your "Organizing" Skills=123
Drafting Exercise No. 4-A=123
Drafting Exercise No. 4-B=123
Chapter Five How to Achieve Clarity=125
Step Five "Clarify!"=125
Part I. Objectives=125
Confronting Twin Evils=125
Eliminating Ambiguity=125
Eliminating Imprecision=126
What to Do about Vagueness=126
Void for Vagueness Doctrine=127
Part II. Twelve Rules for Drafting Clearly=127
Introduction=127
Rule No. 1. Present Tense=127
Rule No. 2. Active Voice=128
Rule No. 3. Singular Subjects=128
Rule No. 4. Place Modifiers Side-by-Side with Modified Text=129
Rule No. 5. Avoid Long Sentences=130
Rule No. 6. Avoid Combining Legal Concepts=130
Rule No. 7. Define Terms=131
Rule No. 8. Use Words Consistently=133
Rule No. 9. Choose Basic Words, Essential to Meaning=133
Rule No. 10. Write Formally, Not Conversationally=134
Rule No. 11. Gender-Neutral Expression=135
Rule No. 12. Punctuate for Meaning=136
Part III. "Problem Words"=137
Introduction=137
"Above", "Below", "Aforementioned", "Heretofore", "Hereafter", "Thereafter", "Thereto", "Therefore"=137
"act", "state"=137
"Assure", "Insure"=138
"Authorities"=139
"By", "Within"=139
"Commencing"=140
"Currently", "Recently", "Soon"=140
"Deems"=140
"Effects"=141
"Execute", "Implement"=141
"Includes but Not Limited to"=142
"Person"=142
"Powers"=143
"Prior to", "Subsequent to"=143
"Program"=144
": Provided, That"=144
"Pursuant to"=145
"Said", "Such"=145
"Up To"=146
"Which"=146
Part IV. Outsmarting Statutory Interpretation=147
Introduction=147
American Theories of Statutory Interpretation in Brief=147
Drafting for the Intentionalist Judge=149
Drafting for the New Textualist Judge=150
Canons of Statutory Construction=151
Presumptions=153
Presumption against Implied Repeal=153
Presumption against Retroactivity=153
Presumption in Favor of Severability=154
Presumption against Federal Preemption=155
Presumption against Abrogation of State Sovereign Immunity=155
Presumption against Extraterritoriality=156
Presumption against Superseding a Treaty=156
Overuse and Misuse of Statutory Construction Sections=157
Part V. Myths about Legislative Drafting=158
Introduction=158
Why Aren't the Laws Written in Plain English?=158
Why Are the Laws So Hard to Read?=158
Why Is Legislation So Long?=159
Isn't Legislative Drafting Mind-Numbing?=160
Test Your "Clarifying" Skills=160
Drafting Exercise No. 5=160
Postscript Legislative Drafting and the Rule of Law=161
Why Draft Correctly?=161
Democratic Values to Be Found in Law=161
How the Five-Step Drafting Process Promotes Democratic Values=162
The Challenge to the Drafter=163
Conclusion=164
Appendices
Appendix A. The United States Legislative Process : A Drafter's View=167
In the Senate=168
Introduction of a Senate Bill=168
Referral to a Senate Committee=170
Senate Committee Action=172
Senate Floor Action=174
Unanimous Consent Agreements=177
Senate Passage=178
Messaging to the House of Representatives=179
In the House of Representatives=179
Initial House Action=180
Referral to a House Committee=181
House Committee Action=182
Rules Committee Action=183
Committee of the Whole House=184
Other Floor Procedures=186
House Passage=187
Resolution of Differences=188
Conference Committee=188
Amendments Between the Houses=191
Enrollment=192
Presidential Action=192
Veto Overrides=193
Official Custody of the Law=193
Appendix B. House and Senate Legislative Forms=195
1. Legislation Originating in the House of Representatives=195
A Bill=195
Joint Resolution=196
Concurrent Resolution=197
Resolution=198
Legislative Amendment=199
2. Legislation Originating in the Senate=200
A Bill=200
Joint Resolution=201
Concurrent Resolution=202
Resolution=203
Legislative Amendment=204
3. Legislative Stages of the Same Bill=205
A Bill, as Introduced in the Senate=205
A Bill, as Reported to the Senate=206
A Senate-Passed Bill in the House=207
Amendments of the House to the Senate Bill=208
Conference Report=209
Public Law=210
Appendix C. Drafting Exercises : The Answers=211
Drafting Exercise No. 1=211
Drafting Exercise No. 2-A=212
Drafting Exercise No. 2-B=213
Drafting Exercise No. 2-C=214
Drafting Exercise No. 3-A=215
Drafting Exercise No. 3-B=216
Drafting Exercise No. 4-A=217
Drafting Exercise No. 4-B=219
Drafting Exercise No. 5=220
Acknowledgments=221
Table of Cases=223
Index=225