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published in(发表于) 2013/12/24 8:42:50
Experts talk： in China people difficult to prosecute officials put on record, said should break the regional jurisdiction rules

Legal evening news (reporters Wen Rujun) this afternoon, the 12th session of the Standing Committee of the Sixth National Conference, opened here in Beijing, meeting for the first time to consider the People's Republic of China administrative litigation law amendments (draft).

Last modified in the administrative procedure is in three major lawsuit, and it's a "mingaoguan Act", which directly regulate the rights and obligations of citizens and the Government, by the Court's judicial review of administrative acts of Government. Existing administrative procedural law was promulgated, to 1989 onwards. The overhaul of the law is to enact has started for the first time in 23 years. Therefore, amendments to the administrative procedure law for nation-building, promotion of administration by law, its meaning is more direct.

Even more worth mentioning is that the existing three procedural law, civil and criminal law has gone through two major amendments, with the exception of administrative procedure law also maintains the original look.

　　Problem hard case, tried hard, difficult to enforce

According to the trial at the national court of 2012 more than one instance over administrative cases, involving administrative field has more than 70 pieces, more urban construction is charged, labour and social security, public safety, family planning, Commerce, industry, transportation and other sectors.

The law 23, the "mingaoguan" road is not smooth, administrative procedure law on the scope of accepting cases, jurisdiction, proceedings and other aspects of quite controversial, practice hard case, in the course of the hearing, difficulties in carrying out three "malaise."

"Office" is mingaoguan hard to get into the door. In 2011, the national was inadmissible and dismissed the charges of administrative cases, accounted for 7.8% of the total number of cases of first instance, civil and commercial cases were 7.8 times. If every "don't let Venice" local policies, "hidden" form does not ' events are countless.

Second, the grass-roots courts are subject to local, public trust in their justice gap, leading to excessively high administrative proceedings the appeal petition, complaint rates, rates. Data show that in 2011, the national administrative cases appeal rate reached a record high of 72.85%, is 6 times in criminal cases, civil cases are 2.4 times; administrative cases the complaint rate was as high as 8.5%, was 6 times in criminal cases and civil cases of 6.3 times.

Meanwhile, Beijing appeals for continued gains in 2011 in the administrative 1.8% of the total number filed in the first instance only, but to the registration appeals appeals of administrative cases of the Supreme Court, 18.5% of all the appeals petition cases.

Supreme confession of a judge: "no County Government County Court trial" has become widespread, grassroots courts of first instance practically useless function. Academia is fortunately, 18, adopted at the third plenary session of the CPC Central Committee on several major issues of comprehensive reform decision is clear: push below the provincial district court over the unified management and prosecutorial power to ensure independent and impartial judicial power should be exercised according to law. This principle of provisions to address the "three-pronged" laid the groundwork.

　Expert Office should break the rules of territorial jurisdiction

With the "mingaoguan" cases increased in recent years, "people don't fight officers with" the tradition is gradually breaking down.

But the "mingaoguan" series of problems encountered, and the intervention of local governments have great relationships. In fact, a common problem is that courts did not dare and were reluctant to directly award the Government loses, thus mobilizing citizens to put their case for withdrawing treatment to circumvent the decision, mainly avoiding judgment against the Government.

In addition, existing laws itself should not be ignored, such as the "jurisdiction" issues.

Many scholars believe that jurisdictional issues will have important implications for the effect of the administrative procedure law. Lv Liqiu, Deputy Director of the National Association of administrative law Professional Committee called for, modify the administrative procedure law should be a major breakthrough.

"Want to be able to break the rules of territorial jurisdiction, such as administrative organs in Beijing, not necessarily a plaintiff must prosecute at Beijing, it is able to select another domain to prosecute, on the practice field hoping to facilitate the plaintiff, case, such a convenient jurisdiction rule, to crack the case difficult challenges. "Lv Liqiu said.

　Recommended range of accepting and hearing cases again draw borders

In 2011, the national administrative cases have been ruled inadmissible, dismissed the prosecution's ratio is 7.8%, up 7.8 times times more civil and commercial litigation, for a variety of local policies are countless hidden inadmissible. Less than 10% of the plaintiffs, administrative cases in the same period the rate of 72.85% of appeal, complaint rate is 8.5% per cent, is much higher than the rate of appeals in civil and criminal cases and complaint rates.

Typically, it dismissed on the grounds that do not belong to the scope of accepting cases. Local policies, ultra vires of dislocation of local government red tape, violations of citizens ' own interest, which is what academics called the abstract administrative behavior, can you sue, has been controversial, experts want to break the law.

Existing lists 8 cases the administrative procedure law, administrative sanctions, administrative coercive measures against, or Executive operational autonomy, personal rights, property rights and other violations, the Court should accept. University Professor, President of the Association of administrative law of China Law Society Ying Songnian believes that modify the administrative procedure law, scope should be expanded.

Scope for further expansion of thought, academics are essentially uniform. Key is how to expand, extend to what extent, how to determine its boundaries.

"Could be incorporated, in addition to the eight I've got so much, we called a grey area, so from that day on the problem arising from the administrative procedure law, and later said the judicial interpretation, exercise the executive powers of all behaviors can be prosecuted, but ' the following acts are not ' listed in the negative, it has expanded the scope of certain. "Ying Songnian said.

Links

The "mingaoguan" case

The earliest

In 1988, the fishermen Wenzhou Bao Zhengzhao a hundred thousand of buildings the County Government which flood disturbance caused by forced demolition, sued the County, known as reform and opening up "mingaoguan" first. It is understood that because there is no relevant legal provisions, light bearers ran more than a year. Case hearing, difficult to get 1000 audit certificate a certificate.

Most plaintiffs

Chengguan district, Lanzhou city, Gansu province, song's Beach Village built on the land due to collective marketing was taken to prosecute provincial, municipal and district-level Government and related sectors series of administrative cases on August 21 this year at the Lanzhou intermediate people's Court this morning public hearing. 1102 farmers when the plaintiff, song's Beach Village.

Claim up to

On December 11 this year, due to his own private museum by forced demolition, a large number of collections lost Shanghai Liu Guangjia and 75 years old wife Zhu Rongzhou Shanghai Minhang District Government, the claims 289 million dollars. This edition/reporter Wen Rujun

　　法制晚报讯(记者 温如军) 今天下午，第十二届全国人大常委会第六次会议将在北京人民大会堂开幕，会议首次审议《中华人民共和国行政诉讼法修正案(草案)》。

　　行政诉讼法是我国三大诉讼法中最后修订的，而且它是一部“民告官法”，即直接规范公民与政府的权利义务，由法院对政府的行政行为做出司法审查。现行的《行政诉讼法》是1989年颁布、1990年10月1日起正式实施的。这次对这部法律的大修，是颁布至今23年来首次启动。因此，修订行政诉讼法对于建设法治国家、推进依法行政，其意义更为直接。

　　更值一提的是，现行的三大诉讼法中，民事和刑事诉讼法都已经历了两次大的修订，唯独行政诉讼法还保持着当初的面貌。

　　问题 立案难、审理难、执行难

　　数据显示，2012年在全国法院审结的128600多件一审行政案件中，涉及行政管理领域的有70多件，比较多的是告城建、劳动和社会保障、公安、计划生育、工商、交通等部门。

　　这部法律实施23年以来，“民告官”之路走得并不顺畅，行政诉讼法在受案范围、管辖、审理程序等方面颇存争议，实践过程中存在立案难、审理难、执行难三大“顽疾”。

　　“立案难”即民告官的门难进。2011年，全国以不予受理和驳回起诉结案的行政案件，占全部一审结案总数的7.8%，是民商事案件的7.8倍。如果考虑到各地各种“不让秋菊打官司”的土政策，“隐性”的不立案事件更是不计其数。

　　其次，基层法院受制于地方，其司法公信不彰，导致行政诉讼畸高的上诉率、申诉率、上访率。数据显示，2011年，全国行政案件的上诉率达到了创纪录的72.85%，是刑事案件的6倍，民事案件的2.4倍；行政案件申诉率也高达8.5%，是刑事案件的6倍和民事案件的6.3倍。

　　与此同时，进京上访数量持续走高，2011年全国行政一审收案数量仅占总数的1.8%，但当年到最高法院登记申诉上访的行政案件，却占全部申诉上访案件的18.5%。

　　最高法某法官曾坦言：“县法院审不了县政府”成为普遍现象，基层法院的一审功能几乎形同虚设。让学界幸喜的是，十八届三中全会通过的《中共中央关于全面深化改革若干重大问题的决定》已明确：推动省以下地方法院人财物统一管理，确保依法独立公正行使审判权检察权。这一原则性的规定为解决“三难”埋下了伏笔。

　　专家 立案应打破地域管辖规则

　　随着“民告官”案件近年来的增多，“民不跟官斗”的传统思想被逐渐打破。

　　但“民告官”遭遇到一系列的问题，这和地方政府的干预影响有很大的关系。事实上，一个普遍问题是，法院不敢、不愿直接判政府败诉，因而积极动员公民一方将案子作撤诉处理，以规避判决，主要是规避做出政府败诉的判决。

　　另外，现行法律本身的问题也不容忽视，如“管辖权”问题。

　　许多学者认为，管辖问题将对行政诉讼法的实施效果产生重要影响。全国律协行政法专业委员会副主任吕立秋呼吁，行政诉讼法修改应有重大突破。

　　“希望能够打破这种地域管辖的规则，比如说行政机关在北京，不一定原告就必须在北京起诉，它可以选择其他地域起诉，在实务界都希望能够便利原告、便利立案，这样一种便利的管辖规则，能够破解立案难这样的难题。”吕立秋说。

　　建议 案件受理范围重新划边界

　　2011年，全国行政案件被裁定不予受理、驳回起诉的比例是7.8%，同比民商事诉讼案件高7.8倍，因各种土政策隐性不予受理的更是不计其数。原告胜诉的比例不足10%，同期行政案件上诉率达到72.85%，申诉率更是达到8.5%，均远高于民事和刑事案件的上诉率和申诉率。

　　通常，法院不予受理，理由是不属于受案范围。地方政府的土政策、越权错位的红头文件侵犯公民的自身权益，也就是学界所称的抽象行政行为，能不能告，一直有争议，专家希望此次修法有突破。

　　现行行政诉讼法列举了8类应受理的案件，对行政处罚、行政强制措施不服，或者认为行政机关侵犯经营自主权、人身权、财产权等，法院都应当受理。中国政法大学终身教授、中国法学会行政法学研究会会长应松年认为，行政诉讼法修改，应扩大受案范围。

　　对于进一步扩大受案范围的思想，学界基本上是统一的。关键是怎样扩大，扩大到什么程度，如何确定其边界。

　　“可以立案的，除了这八项以外还多着呢，我们叫做灰色地带，所以从行政诉讼法产生的那天开始就产生这个问题，后来司法解释就说了，所有的行使行政职权的行为都可以起诉，但是‘下列行为不能’，这样列举式的否定，就把可以肯定的范围扩大了。”应松年说。

　　链接

　　“民告官”典型案例

　　时间最早

　　1988年，温州渔民包郑照十几万盖的楼房被县政府以对抗洪防汛造成干扰为由强拆，包家状告县政府，被称为改革开放后“民告官”第一案。据了解，因为没有相关法律规定，光立案就跑了一年多时间。案件开庭时，1000张旁听证一证难求。

　　原告最多

　　甘肃省兰州市城关区宋家滩村村民因集体土地上所建市场被拆迁，起诉省、市、区三级政府及相关部门系列行政案件，今年8月21日上午在兰州市中级人民法院公开开庭审理。宋家滩村1102名农民当原告。

　　索赔最多

　　今年12月11日，因自家私人博物馆遭强拆，大量藏品遗失，上海市75岁的刘光嘉及妻子朱荣周起诉上海市闵行区政府，索赔2.89亿元。 本版文/记者 温如军

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