Critique of a Hypothetical Case on the Structure of Government: Presidential Veto During Recess, Veto on Policy Grounds, and Promulgation and Entry into Force of Statutes

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■ Critique of a Hypothetical Case on the Structure of Government: Presidential Veto During Recess, Veto on Policy Grounds, and Promulgation and Entry into Force of Statutes — Overview

A nine-page constitutional law assignment that critiques all three arguments (by A, B and C) in a hypothetical case about a presidential request for reconsideration of a bill during a National Assembly recess, the promulgation of statutes and when they take effect. In the case, the National Assembly consists of Party A with 100 seats, Party B with 153 and Party C with 47. Bill X, passed under Party B's leadership, is returned by a president from Party A on the seventh day after transmission, during a recess, with a request for reconsideration on the ground that it is undesirable as policy.

On reconsideration, the Assembly passes the same bill again with 200 votes in favor, but the president does not promulgate the finalized statute; the Speaker's subsequent promulgation and an administrative fine imposed on citizen K then become the issues. The first chapter critiques A's argument that the request for reconsideration is void because the Assembly is not in session during a recess. After summarizing the constitutional provisions on submitting and promulgating bills, it argues that the procedure in this case conforms to the Constitution because the Constitution expressly allows a request for reconsideration even during a recess.

The second chapter addresses B's argument that the veto may be used only when there is a legal problem, so a request based on policy grounds is unconstitutional. It explains the significance of the legislative veto under the separation of powers in a presidential system and criticizes B's argument on the basis that the Constitution does not limit the grounds for a request for reconsideration. The third chapter examines C's argument that the fine was justified because the statute was finalized by the second vote and K could have learned of it from the news.

It summarizes when a statute is promulgated and comes into existence and the constitutional rule that, absent a special provision, a statute takes effect only after a set period from promulgation, and discusses how a court should treat Statute X when reviewing the legality of the fine. It is a useful reference for case-based assignments in classes on the structure of government and constitutional law. In critiquing B's argument, it gives examples of when a president may veto a bill (when it cannot be implemented, when it is contrary to the national interest, when it is an unfair political attack, or when the president considers it to violate the Constitution or higher law) and notes that, instead of a veto, the president can promulgate the law and then submit an amendment, so the power should be used with restraint.

When a parcel return deadline is seven days from receipt, I habitually open a calendar and count the days, because working out whether the first day counts and what happens when a weekend falls in between is more confusing than you would think. Reading this assignment reminded me that the constitutional procedure for handling bills is ultimately also a matter of counting days. The moment you put the numbers 15 days after transmission, 5 days after finalization and 20 days after promulgation on a calendar, what is wrong with each of the three arguments becomes clear.

What makes this case tricky is that each argument leans on plausible common sense. 'There is no Assembly during a recess', 'a veto should be used only when a bill is unconstitutional' and 'if people learned about it from the news, it is in effect' all sound right at first. For each argument, this paper first checks the relevant constitutional provisions and then applies them to the facts, clearly showing where common sense and the Constitution part ways.

Reading it while checking the constitutional provisions one by one, what stayed with me was why the formality of promulgation matters: however many people learned of it from the news, a law that has not gone through promulgation cannot bind citizens, and that principle protects the predictability of a state governed by the rule of law. The point most often missed in case-based assignments like this is the date of entry into force.

If you separate finalization, promulgation and entry into force as three different dates, the reasoning for critiquing C's argument falls into place naturally. Note that the cover of this material says it is a sample report, so use only its structure and reasoning and be sure to write the sentences in your own words.

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■ Critique of a Hypothetical Case on the Structure of Government: Presidential Veto During Recess, Veto on Policy Grounds, and Promulgation and Entry into Force of Statutes — Excerpt from the original document (in Korean)

을의 주장은 의회주의의 원칙상 대통령의 법률안거부권(재의요구권)은 오로지 국회가 의결한 법률안의 내용이나 법률제정절차가 헌법에 위반된 경우와 같이 법적인 문제가 있어야만 행사할 수 있는 것이다. 정책적으로 바람직하지 못하다는 이유로 대통령이 함부로 법률안거부권을 행사한 것은 우리 헌법상 권력분립원칙을 위반한 위헌적인 권력남용이다. 따라서 대통령이 법률안 X에 대하여 재의요구를 한 것은 그 이의서의 기재 내용 자체―정책적인 이유로 이의한다는 내용 자체―로 위헌적인 권한행사로서 무효이다.

대통령은 국무회의의 심의를 거쳐서 법률안을 제출할 수 있으며, 법률안거부권을 행사할 수 있으며, 국회에서 의결된 법률안을 이송받아 공포한다. 그리고 헌법 제75조는 대통령은 법률에서 구체적으로 범위를 정하여 위임받은 사항과 법률을 집행하기 위하여 필요한 사항에 관하여 대통령령을 발할 수 있다고 규정함으로써 대통령에게 행정입법권을 부여하고 있다.

대통령이 어떠한 경우에 법률안 거부권을 행사해야 할 것인가에 대해 서는 명문의 규정이 없기 때문에 대통령이 자유재량에 의하여 법률안 거부권을 행사할 수 있다는 이론도 있다. 그러나 대통령이 법률안 거부권을 행사하기 위해서는 정당한 이유와 필요성이 있어야 하는데 그 정당한 이유로는 첫째, 법률안의 집행이 불가능한 경우, 둘째, 국가이익에 반하는 경우, 셋째, 행정부에 대한 부당한 압박을 내용으로 하는 경우, 넷째, 법률안이 헌법과 상위법에 위반되는 것으로 판단되는 경우를 들 수 있다. 그러나 만약 대통령이 정당한 이유 없이 법률안 거부권을 남용할 경우에는 의회로부터 탄핵소추의 사유가 되기도 한다.

한편, 대통령제의 기본 원칙은 의회와 정부가 권력을 나누어 갖는 '권력분립'이다. 이 때 대통령은 국민의 투표를 통해 선출되고, 보장된 임기 동안 소신껏 국정을 운영할 수 있다. 대통령제의 정부형태에서는 의회와 대통령은 상호독립하고 권력분립적인 경향으로 입법기능은 의회에,행정부 수반이면서 국가원수인대통령은 집행권을 갖는다.

통치형태는 전형적인 권력분립에 기초하고 있기 때문에 입법권은 의회에 행정부는 의회의 입법과정을 간섭할 수 없는 것이 원칙으로 행정부의 법률안제출권이 인정되지 않는 것은 대통령제의 기본원리이다. 단점은, 대통령과 의회 간 의견충돌이 생기면 시간과 비용이 낭비될 수 있다. 우리 헌법은 고전적 권력분립이론을 통치구조의 기본원리로 받아들이면서도 그 권력통제의 실효성을 확보하기 위한 수단으로 대통령제를 골격으로 하는 정부형태를 채택하고 있다는 것은 권력통제의 실효성의 증대이다.

대통령이 어떠한 경우에 법률안거부권을 행사해야 할 것인가에 대해서는 명문의 규정이 없다. 대통령이 어떤 법률안에 대해 거부권을 행사할 수 있는 것인지 명문 규정은 없다. 그러나 제도의 취지에 비춰 볼 때 거부권 행사에는 정당한 사유와 필요성이 있어야 한다.

집행 불능의 법률안, 국익에 어긋나는 법률안, 정부에 부당한 정치적 압력을 가하는 내용을 담고 있는 법률안, 위헌적 법률안 등에 해당하는지 적합하게 판단해야 한다. 그러기에 대통령이 자유재량에 의하여 법률안거부권을 행사할 수 있다는 이론도 있으나, 대통령의 법률안거부권은 정당한 사유와 필요성이 있어야 한다.

정당한 사유로는 법률안이 ⅰ) 집행불가능하거나, ⅱ) 국가이익에 반하는 것이거나, ⅲ) 정부에 대하여 부당한 정치적 압박을 그 내용으로 하는 경우, ⅳ) 법률안이 헌법과 상위법에 위반된다고 생각하는 경우를 들 수 있을 것이다. 그러나 대통령은 법률안을 거부하지 아니하고 공포해 놓고 차기 회기에 개정안을 제출할 수도 있기 때문에 법률안거부권의 행사는 신중을 기해야 할 것이다.

결국 정책적 이유에 따른 재의요구도 헌법이 허용하는 대통령의 권한 행사이며, 그 남용은 국회의 재의결이라는 장치로 견제됩니다. 통치의기본구조와 헌법학 수업에서 이 사안을 다룰 때는 헌법 제53조의 법률안 공포와 재의요구 절차, 폐회 중 재의요구의 허용, 환부거부와 보류거부의 차이, 재적 과반수 출석과 출석 3분의 2 이상 찬성의 재의결 요건, 확정법률의 공포 기한과 국회의장의 공포, 공포 후 20일이 지나야 생기는 효력발생 시점을 날짜순으로 정리해 보세요. 권력분립 원칙과 연결하면 세 주장에 대한 비판이 한층 선명해집니다.

■ Critique of a Hypothetical Case on the Structure of Government: Presidential Veto During Recess, Veto on Policy Grounds, and Promulgation and Entry into Force of Statutes — Contents and key concepts

Finalization, promulgation and entry into force are three different dates

The legislative veto and the promulgation of statutes are where the powers of the president and the National Assembly meet. This assignment uses constitutional provisions to critique three arguments about a request for reconsideration during a recess, a veto on policy grounds, and the date of entry into force.

Assignment outline

  • The case: request for reconsideration during a recess, the second vote and delayed promulgation
  • Critique of A: the validity of a request for reconsideration during a recess
  • Critique of B: a veto exercised on policy grounds
  • Critique of C: promulgation of statutes and the date of entry into force
  • References

The three arguments and the gist of the critique

ArgumentGist of the critique
A: a request for reconsideration during a recess is voidThe Constitution allows a request for reconsideration even during a recess
B: a veto on policy grounds is unconstitutionalThe Constitution does not limit the grounds for a request for reconsideration
C: the fine is justified because the violation came after finalizationPromulgation and entry into force must be assessed separately
Key issueSeparation of powers and the legislative procedure

Basic constitutional provisions for understanding the legislative procedure

Under Article 53 of the Constitution, a bill passed by the National Assembly is transmitted to the Executive and promulgated by the president within 15 days. If the president objects to the bill, he or she may, within that period, return it to the National Assembly with a written statement of objections and request reconsideration, and the same applies during a recess. The president may not request reconsideration of only part of a bill or with proposed amendments.

When reconsideration is requested, the National Assembly puts the bill to a new vote, and if it passes the bill again in the same form with a majority of all incumbent members present and at least two-thirds of those present in favor, the bill becomes final as a statute. If the president does not promulgate the finalized statute within 5 days after it is transmitted to the Executive, the Speaker promulgates it.

Unless otherwise provided, a statute takes effect 20 days after the date of promulgation. Promulgation, carried out by publication in the Official Gazette, is the requirement that makes a statute known to the public and gives it effect. The mere fact that it was reported in the news therefore does not give it effect.

The legislative veto is the main way the executive checks the legislature in a presidential system. Because the Constitution does not specify grounds for a veto, the prevailing view is that a veto may rest not only on unconstitutionality but also on policy judgments; to prevent abuse, the Constitution provides for an override vote by the National Assembly.

Legislative veto: the president's power to object to a bill passed by the National Assembly and request reconsideration.
Return veto: returning a bill to the National Assembly with a written statement of objections; this is the method adopted by the Korean Constitution.
Pocket veto: letting a bill die by neither promulgating nor returning it within the period; the Korean Constitution does not recognize it.
Override vote: the procedure of passing a bill again, with a majority of all members present and at least two-thirds of those present in favor, to make it final.
Entry into force: unless otherwise provided, a statute takes effect 20 days after the date of promulgation.

Why it is useful for preparing constitutional case assignments

  • For each argument, it follows the order of checking the constitutional provisions and applying them to the facts.
  • It is a good reference for case-based assignments in classes on the structure of government and constitutional law.
  • It helps you organize the date calculations in the legislative procedure.
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■ Critique of a Hypothetical Case on the Structure of Government: Presidential Veto During Recess, Veto on Policy Grounds, and Promulgation and Entry into Force of Statutes References

  1. 이민열, 최규환, 통치의 기본구조, 한국방송통신대학교출판문화원, 2023 이민열, 통치의 기본구조 강의, 한국방송통신대학교, 2023.
  2. 법령 등 공포에 관한 법률 ( 약칭: 법령공포법 ), [시행 2018. 10. 16.] [법률 제15798호, 2018. 10. 16., 일부개정].
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