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The author:(作者)aaapublished in(发表于) 2013/12/24 8:41:14 Administrative procedure law changes： mingaoguan the proposed oral prosecution
Xin Chunying, Deputy Director of the Working Committee on the law of the NPC, administrative litigation facing the "three-pronged", the most prominent is the case difficult in some places form a "petition do not believe law" of the situation. Draft amendments to the administrative procedure law in 5 ways perfect to protect the procedural rights of the parties. In addition, the Bill also perfects the system of participants in proceedings.
1
Executive authorities must not interfere with a court case
Draft amendment clearly, people's courts and administrative authorities should guarantee the prosecution of rights of the parties. Draft adds: the people's courts shall insure the prosecution of rights of citizens, legal persons or other organizations, should be inadmissible admissible according to the law of administrative cases. Must not interfere with, impede people's Court has accepted the executive authorities in administrative cases. Executive complained to law with the suit.
"Read" Introduction to constitutional and administrative law Research Center Director Jiang Mingan, Peking University, in practice, more administrative organs on administrative proceedings before a court, particularly involving house demolition, land expropriation, prosecution cases such as family planning.
Vice President of China University of politics and law Ma Huaide said in media interviews and in favor of the plaintiff in administrative cases rate is less than 10%, the trial effectiveness and quality is not optimistic, "the reason is that local governments through various visible and invisible mode on administrative judicial intervention. ”
If administrative organ intervention has, and the do? on this, Jiang Mingan explained said, draft modified version while no clear to out answers, but modified version specifically provides, court if due to by administrative intervention or other causes, not accept up pleadings, accept up pleadings Hou not issued written voucher,, party can to superior court complaints, superior court should ordered corrected, and on directly is responsible for of competent personnel and other directly responsibility personnel law giving disposition.
"However, where the ' complaints ' could ' complaint ' is more appropriate. "Jiang Mingan also said that in the future, and discipline inspection and supervision organs of the NPC response to acts of unlawful interference of the executive accountability and strengthen supervision and inspection.
2
Violations of the right to education can be prosecuted
Existing Executive procedural law by case range more narrow, draft will executive organ violations citizens, and corporate or other organization in accordance with the enjoys of land, and mineral, and water, and forest, and mountain, and grassland, and Heath, and beach, and waters, natural resources of ownership or right, executive organ violations rural land contracting right, executive organ illegal financing, and imposed by the requisition property, and assessed costs, executive organ no in accordance with the paid minimum life protection treatment or social security treatment, into by case range.
"Reading" Jiang Mingan introduced the amendments further clarify the legislative intent of the administrative procedure law, added a "just" Word stress that guarantee justice, emphasis on supervision and administration according to law by the Executive. In order to guarantee justice, protection of interests, administration organs of administration according to law, revisions were made to the original law a number of modifications. Stipulates that the people's courts shall safeguard human rights of suit, the executive authorities must not interfere with, impede a court case, scope expansion of the Court, and so on.
"Expand the scope the Court is one of the highlights of the law. "Jiang Mingan said draft amendments through various forms and ways of expanding the scope of accepting cases of administrative litigation. First of all, the original law affected by the scope of the rights guaranteed by the "personal rights and property rights" to extend "the personal rights, property rights and other legitimate rights and interests", which means that the people's right to education, labour rights, political rights have been violated may sue.
In addition, the revised categories were added, confiscate the illegal income, administrative enforcement, subject to change, withdrawal, withdrawal of permits, illegal fund-raising, expropriation of property, originally issued administrative Licensing Act contains only, is now extended to change, extend, withdrawal, withdrawal, cancellation, etc. However, this 10 Act does not expand the scope of accepting cases in real terms, only for the last question, "the personal rights and property rights" Act further defined.
"In the past, the law is not explicitly listed, lots of mechanical enforcement judges do not belong to the scope of accepting cases, corresponding to the counterpart of the prosecution refused to accept. "Jiang Mingan said, though the law could list, not exhaustive, but still has the advantage in such lists, however, he said, the best thing to do is legal does not make positive list and only list negative list, is not within the list of negative administrative actions and issues that courts should be accepted.
3
Party oral prosecution of administrative organs
Clearly can sue orally to facilitate exercise of the right of the parties, additional provisions: the prosecution indictment submitted to the Court, and in accordance with the number of accused to make copies, written complaint is difficult, can sue orally by the people's Court recorded, dated a written document issued by, and inform the other party.
"Reading" said Jiang Mingan, revised the clear "oral to prosecute" is intended to facilitate ordinary people will not write the indictment, is a manifestation of judicial convenience. He said oral prosecution does not lead to abuse against, because the lawsuit to pay litigation costs, no one would want to be fine running to prosecute, "unless you are willing to give the courts give them money. ”
4
Court received petitions shall be a written document
Bill strengthening the admissibility procedure, additional requirements: one is the people's Court shall register it after receiving a complaint on the spot, and issue a written document with date, lack of complaint or if there are other errors, should be given guidance and clarification, and ready to follow through at once inform the party concerned. Shall not, without the guidance and clarification to the prosecution does not meet the criteria, will not be accepted.
Second is prosecuted in accordance with the conditions, the people's Court shall from the date of receiving the complaint or an oral charge ruled in the 7th book. Inadmissible, decisions shall specify the inadmissible reason. The plaintiffs are not satisfied, may file an appeal. Third, the people's Court in neither case in the 7th, and decisions are not made, the parties can higher level people's Court. On the level of the people's Court shall think meet the requirements for, should be filing a case, trial, you can also specify other lower people's court case, trial.
5
Don't answer the pleadings of the Court complained to superiors
Draft also adds provisions: does not accept the indictment, after accepting the complaint without giving a written document, as well as one-time notifying correction complaint, the parties can complain to a higher people's Court, the superior court shall order them to correct, and the direct liable persons in charge and other direct liable persons shall be given sanctions.
- System of participants in proceedings
Representative of the party to a large number of optional proceedings
Spring Hawk introduction, perfecting system of participants in proceedings from four aspects of the draft, including a clear, explicit qualification of defendant, plaintiff qualification additional claims representative system, refine the system of third party.
Spring Hawk noted that the existing principles of comparison on plaintiff qualification of the provisions of the administrative procedure law, in practice, some specific administrative act of the plaintiff in administrative litigation is only understood as counterpart, exclude other interested persons, it is recommended that a clear qualification of plaintiff: counterpart and other specific administrative behavior and concrete administrative acts in the interests of citizens, legal persons or other organizations are entitled to as a plaintiff.
The draft further clarified the defendant eligible, based on practical need to increase provisions: reconsideration does not make a reconsideration decision within the statutory time limit, citizens, legal persons or other organizations sued the original specific administrative act, the Executive is accused of making the original specific administrative acts; prosecution authority as, the administrative body is the defendant. Of any change in the terms of reference of the executive authorities continued to exercise administrative authority is the defendant of its terms of reference.
Additional claims representative system was the modified one of the highlights. Existing administrative procedural law requires joint action, but does not provide for legal representative system, to improve judicial efficiency, increase references in the draft Civil Procedure Code stipulates that party together with large numbers of lawsuits, can be selected by party representatives in the litigation. Representatives of litigation to force the Party on whose behalf, but represents change, a waiver claim, must be authorized by the representatives of the parties agree.
Spring Hawk noted that administrative proceedings involving third party interests in the practice of gradually increasing, perfecting the system of third party in favour of resolving administrative disputes. Draft stipulates that citizens, legal persons or other organizations interested in the specific administrative act complained but did not press charges, or have an interest in the outcome of the case, could serve as a third party application to participate in the proceedings, or communicated by the Court to participate in the proceedings, the people's Court judgment obligation of the third party, the right to file an appeal.
Jinghua times, Shangxi Chen Qiao
(Original title: future "mingaoguan" to be orally prosecution)
全国人大常委会法工委副主任信春鹰表示，行政诉讼面临的“三难”中，最突出的是立案难，在有些地方形成了“信访不信法”的局面。行政诉讼法修正案草案从5个方面完善对当事人的诉权保护。此外，草案还完善了诉讼参加人制度。
行政机关不得干预法院立案
修正案草案明确，人民法院和行政机关应当保障当事人的起诉权利。草案增加规定：人民法院应当保障公民、法人或者其他组织的起诉权利，对应当受理的行政案件依法受理。行政机关不得干预、阻碍人民法院受理行政案件。被诉行政机关应当依法应诉。
【解读】北京大学宪法与行政法研究中心主任姜明安介绍，在实践中，行政机关干预法院受理行政诉讼的情况较多，特别是对涉及房屋拆迁、土地征收、计生处理行为等案件的起诉。
中国政法大学副校长马怀德在接受媒体采访时说，我国行政案件原告胜诉率不到10%，审判效果和质量不容乐观，“究其原因就是地方政府通过各种有形无形的方式对行政审判加以干预。”
如果行政机关干预了，又该怎么办?对此，姜明安解释说，草案修改稿虽然没有明确给出答案，但修改稿专门规定，法院如果因受行政干预或其他原因，不接受起诉状，接受起诉状后不出具书面凭证等，当事人可以向上级人民法院投诉，上级人民法院应当责令改正，并对直接负责的主管人员和其他直接责任人员依法给予处分。
“不过，这里的‘投诉’可能用‘申诉’更合适。”姜明安同时表示，今后，人大和纪检监察机关应对行政机关的违法干预行为加强监督检查和问责。
受教育权遭受侵犯也可起诉
现行行政诉讼法受案范围较窄，草案将行政机关侵犯公民、法人或者其他组织依法享有的土地、矿藏、水流、森林、山岭、草原、荒地、滩涂、海域等自然资源的所有权或者使用权，行政机关侵犯农村土地承包经营权，行政机关违法集资、征收征用财产、摊派费用，行政机关没有依法支付最低生活保障待遇或者社会保险待遇等纳入受案范围。
【解读】姜明安介绍，这次修法进一步明确了行政诉讼法的立法目的，新加了“公正”二字强调保障公正，强调监督行政机关依法行政。为了保障公正，保护相对人权益，监督行政机关依法行政，修改稿对原法进行了多方面的修改。如规定人民法院应当保障相对人诉权，行政机关不得干预、阻碍法院受案，扩大法院受案范围等等。
“扩大法院受案范围是此次修法亮点之一。”姜明安说，修正案草案通过多种形式和途径扩大行政诉讼的受案范围。首先，将原法受案保障的权利范围由“人身权、财产权”扩大至“人身权、财产权等合法权益”，这意味着相对人受教育权、劳动权、政治权利等被侵犯均可起诉。
此外，修改稿新增了几类行为，如没收违法所得、行政强制执行、变更、撤销、撤回行政许可、违法集资、征收征用财产等，原行政许可行为只包含颁发，现扩至变更、延续、撤销、撤回、注销等。不过，这10项行为并未实质扩大受案范围，只是对过去涉“人身权、财产权”行为的进一步明确。
“以前法律未明确列举，很多机械执法的法官就认为不属受案范围，对相对人的相应起诉就拒不受理。”姜明安说，虽然法律无论怎么列举，都不可能穷尽，但这样列出来仍是有好处的，不过他表示，最好的办法是法律不列正面清单，只列负面清单，不在负面清单内的行政行为和事项，法院都应受理。
当事人可口头起诉行政机关
草案明确可以口头起诉，方便当事人行使诉权，新增加规定：起诉应当向人民法院递交起诉状，并按照被告人数提出副本，书写起诉状确有困难的，可以口头起诉，由人民法院记入笔录，出具注明日期的书面凭证，并告知对方当事人。
【解读】姜明安表示，修改稿此次明确“口头起诉”，就是为了方便不会写起诉状的老百姓，是司法便民的体现。他表示，口头起诉并不会导致滥诉，因为诉讼是要交诉讼费的，没有人会愿意没事也跑去起诉，“除非你愿意多给法院送钱。”
法院接到诉状应出书面凭证
草案强化受理程序约束，增加规定：一是人民法院应当在接到起诉状时当场予以登记，并出具注明日期的书面凭证，起诉状内容欠缺或者有其他错误的，应当给予指导和释明，并一次性告知当事人补正。不得未经指导和释明即以起诉不符合条件为由不受理。
二是起诉符合条件的，人民法院应当在接到起诉状或者口头起诉之日起七日内作出裁定书。不予受理的，裁定书应当载明不予受理的理由。原告对裁定不服的，可以提起上诉。三是人民法院在七日内既不立案，又不作出裁定书的，当事人可以向上一级人民法院起诉。上一级人民法院认为符合起诉条件的，应当立案、审理，也可以指定其他下级人民法院立案、审理。
法院不接诉状可向上级投诉
草案还增加规定：对于不接受起诉状、接受起诉状后不出具书面凭证，以及不一次性告知当事人补正起诉状内容的，当事人可以向上级人民法院投诉，上级人民法院应当责令改正，并对直接负责的主管人员和其他直接责任人员依法给予处分。
□诉讼参加人制度
当事一方人数众多可选代表进行诉讼
信春鹰介绍，草案从四个方面完善诉讼参加人制度，包括明确原告资格、明确被告资格、增加诉讼代表人制度、细化第三人制度。
信春鹰指出，现行行政诉讼法关于原告资格的规定比较原则，实践中，有的将行政诉讼原告仅理解为具体行政行为的相对人，排除其他利害关系人，因此建议明确原告资格：具体行政行为的相对人以及其他与具体行政行为有利害关系的公民、法人或者其他组织，有权作为原告提起诉讼。
草案也进一步明确被告资格，根据实践需要增加规定：复议机关在法定期限内未作出复议决定，公民、法人或者其他组织起诉原具体行政行为的，作出原具体行政行为的行政机关是被告；起诉复议机关不作为的，复议机关是被告。行政机关职权变更的，继续行使其职权的行政机关是被告。
增加诉讼代表人制度是此次修改亮点之一。现行行政诉讼法规定共同诉讼，但未规定诉讼代表人制度，为提高司法效率，草案参照民事诉讼法增加规定：当事人一方人数众多的共同诉讼，可以由当事人推选代表人进行诉讼。代表人的诉讼行为对其所代表的当事人发生效力，但代表人变更、放弃诉讼请求，必须经被代表的当事人同意。
信春鹰指出，实践中行政诉讼涉及第三方利益的情形逐渐增多，完善第三人制度有利于解决行政争议。为此草案规定：公民、法人或者其他组织同被诉具体行政行为有利害关系的但没有提起诉讼，或者同案件处理结果有利害关系的，可以作为第三人申请参加诉讼，或者由人民法院通知参加诉讼，人民法院判决承担义务的第三人，有权依法提起上诉。
京华时报记者 商西陈荞
（原标题：今后“民告官”拟可口头起诉）
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