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The author:(作者)归海一刀
published in(发表于) 2013/11/14 3:19:12
Wang Gongyi：No institutional guarantee independent jurisdiction prosecution is empty talk

　　Judicial power and procuratorial power "independent" path: people, money, prior independent

Qin Xiya

18 the third plenary session of the Communique for the construction rule of law outlined the overall framework of reform in China: explicitly offered to deepen the reform of Justice, ensure independent judicial power should be exercised in accordance with procuratorial powers, a sound judicial power operating mechanism, improve the system of judicial protection of human rights.

Many academics surveyed said, although the communiqué released a positive signal, but judicial power and procuratorial power independent of exercise can ensure that "two powers" independent "Division to" touch, is to wait for the introduction of more details after the meeting.

Ministry of Justice "justice", said Wang Gongyi, Director of the Research Office of the newspaper, the Constitution, people's courts and people's procuratorates exercise judicial power independently and procuratorial powers, not subject to interference by any administrative organ, public organization or individual. But to protect the "two powers", independent, critical to be equipped with a sound system design. There is no guarantee, to exercise adjudicative and procuratorial powers independently is disarming.

Director of the Renmin University of China Research Center of litigation system and judicial reform Chen Weidong told this newspaper that to achieve exercise adjudicative and procuratorial powers independently according to law, the main obstacle in the place of Justice, administration of.

Wang Gongyi believes that to break that barrier, Court and Procuratorate of the separation of the judicial business and the administration of justice; courts and procuratorates at all levels of personnel, property, and so the "manage ranks" mention; the Court of third instance system path system is workable options.

　Judicial power and procuratorial power independent paths to explore

Realization of judicial power and procuratorial power independent of the main obstacle is the localization of the judiciary, administration.

Chen Weidong introduction, since my jurisdiction coincides with the height of the jurisdictions, human, financial, and material is highly dependent on local, so that courts and procuratorates were used as local government bodies, leading to jurisdiction of the courts and procuratorates prosecutorial power and influence and intervention by the local government, which is justice localizing simple presentation.

Refers to the trial and procuratorial powers of the administration of Justice during the run, did not carry out the independent judgment, the principle of personal responsibility, but layers of approval, "trial, sentenced to isolation" approach.

Wang Gongyi made a number of recommendations, pathfinding "two rights" system design.

First, the Court of the separation of the judicial business and the administration of Justice, the public prosecution service. By the Department of Justice as "liangyuan" provides specialized services to deal specifically with local governments "between people, things, wealth", and between the local government and courts, the public prosecutor's Office set up a "firewall", separated from its direct contacts and benefits transactions, making adjudicative and procuratorial powers against executive powers of intervention.

Second, courts and procuratorates at all levels of personnel, property rights "manage ranks" drawn up.

Wang Gongyi believes that personnel appointed by the same level people's Congress of the District Court, the public prosecution service, human, financial and material provided by the local at the local government, which provides convenience for local party and Government organs to interfere in judicial.

To break this problem, Wang Gongyi advice is, County, municipal court, public prosecutor's Office of personnel appointed by the provincial people's Congress, budget allocated centrally by the provincial government; the provincial high court personnel appointed by the national people's Congress, budget allocated centrally by the central financial. By improving the courts and procuratorates at all levels of personnel and property rights "management hierarchy", achieving jurisdiction and administrative jurisdiction of the "asymmetrical", so as to avoid local government interference.

In addition to the above two points more operational approach is through the Court of third instance settlement "jurisdictions". Specifically, made Wang Gongyi, with the provincial cases, at the grass-roots courts of first instance and the second instance to the municipal intermediate people's Court, three to the provincial superior courts of first instance and thus break local protectionism at the County and city level. TRANS-provincial cases, an appeal to city intermediate people's Court, to the provincial High Court of second instance, the three appeal to the Supreme Court, thereby breaking the intervention at the provincial level. As a solution to the "counties, cities and provinces," three-tier justice "localization".

Wang Gongyi believes that Court of the Court of third instance does not increase the burden. About 85% of the case in the first instance address, just 15% case v ne bis in idem, if you set a third instance, the percentage must be low.

Court reference of the experts came up with central banks "region" solve "the localization of the judiciary", Wang Gongyi pointed out that two instance as the final in China, many of the cases to the intermediate people's Court of final appeal, it is difficult to reach above the provincial level, "regional" level. Localized in provinces with provincial, municipal and city, between the County and the County there. City and county-level jurisdictions remains unresolved.

"From the issue of the administration of Justice and local levels to address the existing justice system, 18 plenary session is expected to break through in this regard. "Chen Weidong introduction, one court has explored. For example, introduced Foshan intermediate people's Court, "presiding judge handling responsibility system" broken "Court" restriction and the traditional "trial, sentenced to separation". From the filed, hearing and writing decisions to issue a judgment, presiding judge all personally, and is ultimately responsible for. Implementation of this system for nearly a year, the rate of appeal, revision or protest rates are positive changes.

"Intermediate people's Court of Foshan, Shenzhen Futian District people's Court to try and resolve of the administration of Justice in the country for the future, localized problems, providing a valuable experience for reference. "Chen Weidong said.

　Judicial reform is a breakthrough in administrative system reform

Bulletin on "deepening judicial reform" was a topic discussed for nearly 20 years old.

"Judicial reform is an important part of the reform of politics, while the pervasive system of justice based on the rule of law and the public on the basis of prescriptive and fundamental characteristics, feasibility. Therefore, is a political breakthrough in the reform of judicial system reform. "Wang Gongyi said.

Wang Gongyi believes that deepening judicial reform, achieving "four-separation" to resolve the legacy of the justice system for many years, "vital" issue.

A court trial, execution isolation. Said Wang Gongyi, present, trial and execution of civil and administrative cases are vested in the Court's permission, Court and "players and referees," two hats. Juridically speaking, this approach is not perfect. "The combination of trial and execution" model provided by taking into account the decisions of the Court could not perform select sentenced to less, not convicted, the possibility of delays.

Now, criminal trial and execution have been separated, tried by the Court, the Department of Justice Executive. Separation of administrative, civil, trial, execution in the field of early implementation. Wang Gongyi proposed transition to the Executive the right to Executive, trial is not affected by the implementation of the Security Court, courts and administrative bodies on parallel tracks, in place.

Second, investigation and detention guards to separate. Said Wang Gongyi, investigation and detention is currently the public security departments in the administration. Prolonged detention, torture and other issues cannot be cured. To cure the problems, the protection of human rights, only a touch from system design.

In addition, the Procuratorate of procuratorial and investigative powers should be separated. Wang Gongyi believes that procuratorial organs all investigative and prosecutorial power on set, for its own acts of supervision is absent, system design flaws that cannot be ignored.

Finally, the separation of the judicial business and the administration of Justice, the public prosecution service, it is important to break the localization of the judiciary, administration system.

"If comprehensive reform to address these four issues, judicial system reform has taken a crucial step. "Wang Gongyi said.

　　审判权与检察权“独立”路径：人、财、事先独立

　　秦夕雅

　　十八届三中全会公报为建设法治中国勾勒了改革整体框架：明确提出要深化司法体制改革，确保依法独立公正行使审判权检察权，健全司法权力运行机制，完善人权司法保障制度。

　　多位受访学者表示，尽管公报释放了积极信号，但审判权与检察权的独立行使能否确保，“两权”独立是否能为“司改”破题，尚需等待会后更多细则的出台。

　　司法部“司法”研究室主任王公义对《第一财经日报》表示，《宪法》规定，人民法院、人民检察院依法独立行使审判权、检察权，不受行政机关、社会团体和个人的干涉。但要保障“两权”独立，关键要配备完善的制度设计。没有制度保障，要独立行使审判权与检察权是空谈。

　　中国人民大学诉讼制度及司法改革研究中心主任陈卫东则对本报表示，实现审判权与检察权的依法独立行使，主要障碍在司法地方化、行政化。

　　王公义认为，要破除这一障碍，法院、检察院的司法业务与司法行政相分离；各级法院、检察院的人事权、财产权等“管理位阶”上提；三审终审制度是可行的制度路径选项。

　　审判权与检察权的独立路径探寻

　　实现审判权与检察权的独立最主要的障碍是司法地方化、行政化。

　　陈卫东介绍，由于我国司法辖区与行政辖区的高度重合，人、财、物高度依赖于地方，因此法院、检察院被习惯看成地方政府的机构，导致法院、检察院的审判权与检察权受到当地政府的影响与干预，这是司法地方化的简单表述。

　　而司法行政化是指审判权与检察权的运行过程中，并未践行独立判断、个人负责的原则，而是采取层层审批、“审、判分离”的方式。

　　王公义对此提出了多条建议，寻路“两权独立”的制度设计。

　　一是法院、检察院的司法业务和司法行政相分离。由司法行政部门为“两院”提供专门服务，具体处理与地方政府之间的“人、事、财”，并在地方政府与法院、检察院之间建立起一道“防火墙”，隔开其直接接触和利益往来，从而使审判权和检察权不受行政权力的干预。

　　二是各级法院、检察院的人事权、财产权“管理位阶”上提。

　　王公义认为，地方法院、检察院的人事由同级人大任命，人、财、物由当地同级地方政府提供，这为当地党政机关对干预司法提供了便利。

　　要破除这个问题，王公义的建议是，县、市级别的法院、检察院的人事权由省人大任命，财政由省政府统一拨付；各省高院的人事由全国人大任命，财政由中央财政统一拨付。通过提高各级法院、检察院的人事权、财产权的“管理位阶”，实现司法管辖权与行政管辖权的“不对称”，从而避免地方政府干涉。

　　除上述两点，操作性更强的办法是借助三审终审制解决“司法地方化”问题。具体来讲，王公义提出，同省案件，一审在基层法院、二审至市中级法院，三审到省高级法院，从而破除县、市一级的地方保护主义。跨省案件，一审诉至市中院，二审至省高院，三审诉至最高院，从而破除省一级的干预。以此解决“县、市、省”三级的司法“地方化”问题。

　　王公义认为，三审终审制并不会增加法院负担。我国大约85%的案件在一审解决，仅15%案件诉之二审，如果设置三审，其比例一定更低。

　　对于有专家提出的法院借鉴央行“大区制”解决“司法地方化”，王公义指出，我国实行两审终审，很多案件到中级法院就终审了，很难到达省级以上的“大区”一级。而地方化在省与省、市与市、县与县之间都存在。市、县一级的司法地方化仍然没有解决。

　　“司法行政化与地方化问题从现行司法体制层面来解决，十八届三中全会有望在这一方面有所突破。”陈卫东介绍，全国多个法院已有所探索。比如，佛山中院推行“主审法官办案责任制”，打破了“庭”的限制和传统的“审、判分离”。从收案、开庭、写判决到签发判决，审判长全部亲历亲为，并且最终负责。实施这一制度近一年来，该院的上诉率、改判率、抗诉率均有积极的变化。

　　“佛山中院、深圳福田区人民法院等地的尝试，为未来在全国范围内解决司法行政化、地方化问题提供了可供借鉴的宝贵经验。”陈卫东称。

　　司法改革是行政体制改革突破口

　　公报提出的“深化司法体制改革”是一个讨论了近20年的老话题。

　　“司法体制改革是政治体制改革的重要组成部分，同时，司法体制建立在法治与公众普遍认知的基础上，具有规范性、根本性、可行性的特征。因此，司法体制改革是政治体制改革的突破口。”王公义认为。

　　王公义认为，要深化司法体制改革，须实现“四个分离”来解决多年来司法体制遗留的“要害”问题。

　　一是法院审判、执行分离。王公义说，当下，民事案件与行政案件的审判与执行都归属法院的权限，法院身兼“裁判员、运动员”两职。从法理上来讲，这种方式并不完善。 “审判与执行结合”的模式为法院提供了因考虑到判决不能执行就选择少判、不判、拖延的可能性。

　　当下，刑事案件的审判与执行已经分开，由法院审判，司法部执行。行政、民事领域的审判、执行分离应早日执行。王公义建议将执行权过渡到行政机关，保障法院审判不受执行的影响，法院与行政机关各行其是，各司其职。

　　二是侦查与羁押看守要分离。王公义说，侦查与羁押目前是公安部门在管理。超期羁押、刑讯逼供等问题不能得到根治。要彻底根治这些问题，要保障人权，只有从制度设计上来破题。

　　此外，检察院的检察权与侦查权应分离。王公义认为，对侦查与检察权集一身的检察机关来说，对其本身行为的监督缺位，是体制设计上不可忽视的缺陷。

　　最后，法院、检察院的司法业务和司法行政相分离，这是破除司法地方化、行政化的重要制度保障。

　　“若全面深化改革能解决上述四个问题，司法体制改革就迈出了关键一步。”王公义称。

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