cciia.org.cn 2022-9-5 10:34:49 中(zhong)國(guo)人大網(wang)
最高人民法院關于四級法院審級職能定位
改革試點情況的中期報告
——2022年8月30日在第十三屆全國人民代表大會常務委員會第三十六次會議上
最高人民(min)法院院長 周強
全國(guo)人民代(dai)表(biao)大會常務委(wei)員會：
根據(ju)本次會(hui)議安排(pai)，我代表(biao)最高(gao)人民法院報(bao)告四級法院審級職(zhi)能定位改革(ge)試點工作進展(zhan)情(qing)況，請(qing)審議。
“完善審(shen)級(ji)(ji)制度”是黨(dang)的(de)十(shi)八(ba)屆四(si)(si)中全(quan)(quan)會(hui)(hui)確定(ding)(ding)的(de)重(zhong)要改(gai)革(ge)(ge)舉措。2019年(nian)5月(yue)，中共中央(yang)辦公廳印發《關于政法(fa)(fa)領(ling)域(yu)全(quan)(quan)面(mian)深化改(gai)革(ge)(ge)的(de)實(shi)施(shi)意(yi)見》，將“明確四(si)(si)級(ji)(ji)法(fa)(fa)院(yuan)(yuan)職能定(ding)(ding)位”列為重(zhong)大改(gai)革(ge)(ge)任務。2021年(nian)5月(yue)，中央(yang)全(quan)(quan)面(mian)深化改(gai)革(ge)(ge)委(wei)員會(hui)(hui)審(shen)議通(tong)過(guo)《關于完善四(si)(si)級(ji)(ji)法(fa)(fa)院(yuan)(yuan)審(shen)級(ji)(ji)職能定(ding)(ding)位改(gai)革(ge)(ge)的(de)方(fang)案》（以(yi)下(xia)簡稱《改(gai)革(ge)(ge)方(fang)案》），明確了(le)這項(xiang)(xiang)改(gai)革(ge)(ge)的(de)目標和內容。2021年(nian)8月(yue)，第十(shi)三屆全(quan)(quan)國(guo)人(ren)(ren)民(min)(min)代表大會(hui)(hui)常(chang)務委(wei)員會(hui)(hui)第三十(shi)次會(hui)(hui)議作(zuo)出(chu)《關于授(shou)(shou)權(quan)最高人(ren)(ren)民(min)(min)法(fa)(fa)院(yuan)(yuan)組(zu)織開展四(si)(si)級(ji)(ji)法(fa)(fa)院(yuan)(yuan)審(shen)級(ji)(ji)職能定(ding)(ding)位改(gai)革(ge)(ge)試(shi)(shi)點工(gong)(gong)作(zuo)的(de)決定(ding)(ding)》（以(yi)下(xia)簡稱《授(shou)(shou)權(quan)決定(ding)(ding)》）。2021年(nian)9月(yue)，最高人(ren)(ren)民(min)(min)法(fa)(fa)院(yuan)(yuan)印發《關于完善四(si)(si)級(ji)(ji)法(fa)(fa)院(yuan)(yuan)審(shen)級(ji)(ji)職能定(ding)(ding)位改(gai)革(ge)(ge)試(shi)(shi)點的(de)實(shi)施(shi)辦法(fa)(fa)》（以(yi)下(xia)簡稱《試(shi)(shi)點實(shi)施(shi)辦法(fa)(fa)》），于2021年(nian)10月(yue)1日正式啟動試(shi)(shi)點工(gong)(gong)作(zuo)。試(shi)(shi)點以(yi)來，在以(yi)習近(jin)平(ping)同志為核心的(de)黨(dang)中央(yang)堅強(qiang)領(ling)導(dao)下(xia)，在全(quan)(quan)國(guo)人(ren)(ren)大及其常(chang)委(wei)會(hui)(hui)有(you)力監督下(xia)，最高人(ren)(ren)民(min)(min)法(fa)(fa)院(yuan)(yuan)堅持以(yi)習近(jin)平(ping)新時代中國(guo)特色社會(hui)(hui)主義(yi)思(si)想(xiang)為指(zhi)導(dao)，深入貫(guan)徹習近(jin)平(ping)法(fa)(fa)治思(si)想(xiang)，深刻領(ling)悟“兩個(ge)確立”的(de)決定(ding)(ding)性意(yi)義(yi)，增強(qiang)“四(si)(si)個(ge)意(yi)識(shi)”、堅定(ding)(ding)“四(si)(si)個(ge)自信”、做到(dao)“兩個(ge)維護”，推動試(shi)(shi)點各(ge)項(xiang)(xiang)工(gong)(gong)作(zuo)平(ping)穩有(you)序開展。全(quan)(quan)國(guo)人(ren)(ren)大監察司(si)法(fa)(fa)委(wei)、全(quan)(quan)國(guo)人(ren)(ren)大常(chang)委(wei)會(hui)(hui)法(fa)(fa)工(gong)(gong)委(wei)多(duo)次聽取匯報(bao)，開展監督指(zhi)導(dao)，有(you)力促進(jin)了(le)試(shi)(shi)點工(gong)(gong)作(zuo)落實(shi)落地。
一、試點工作開展情況
試點工(gong)(gong)作(zuo)在堅持“四(si)(si)級(ji)兩(liang)審(shen)(shen)(shen)(shen)(shen)(shen)制”制度基礎上，針對(dui)四(si)(si)級(ji)法(fa)院(yuan)(yuan)案(an)(an)件(jian)(jian)數(shu)量結(jie)構分(fen)布不夠合理、審(shen)(shen)(shen)(shen)(shen)(shen)判(pan)資源(yuan)分(fen)配不夠科(ke)學、審(shen)(shen)(shen)(shen)(shen)(shen)級(ji)監督(du)作(zuo)用(yong)發揮(hui)不夠充分(fen)等突(tu)出問題，從三個(ge)方面優化(hua)完善(shan)四(si)(si)級(ji)法(fa)院(yuan)(yuan)審(shen)(shen)(shen)(shen)(shen)(shen)級(ji)職(zhi)(zhi)能：一(yi)是在試點地(di)(di)區調整適用(yong)行政(zheng)訴(su)訟(song)法(fa)第(di)(di)十五條關于級(ji)別(bie)管轄(xia)的(de)規定，推動(dong)將審(shen)(shen)(shen)(shen)(shen)(shen)理難度不大、受(shou)地(di)(di)方干預少、適宜就地(di)(di)化(hua)解的(de)四(si)(si)類行政(zheng)案(an)(an)件(jian)(jian)，交由(you)基層人民法(fa)院(yuan)(yuan)審(shen)(shen)(shen)(shen)(shen)(shen)理。同步完善(shan)民事案(an)(an)件(jian)(jian)級(ji)別(bie)管轄(xia)標準，實(shi)現(xian)審(shen)(shen)(shen)(shen)(shen)(shen)判(pan)重心進(jin)一(yi)步下(xia)沉。二(er)是改革民事、行政(zheng)再(zai)審(shen)(shen)(shen)(shen)(shen)(shen)申請程序(xu)和標準，調整適用(yong)民事訴(su)訟(song)法(fa)第(di)(di)二(er)百(bai)零六條、行政(zheng)訴(su)訟(song)法(fa)第(di)(di)九十條關于再(zai)審(shen)(shen)(shen)(shen)(shen)(shen)申請一(yi)律(lv)(lv)“上提一(yi)級(ji)”的(de)規定，再(zai)審(shen)(shen)(shen)(shen)(shen)(shen)糾錯(cuo)職(zhi)(zhi)能主要由(you)高(gao)級(ji)人民法(fa)院(yuan)(yuan)承(cheng)擔，最(zui)高(gao)人民法(fa)院(yuan)(yuan)通過審(shen)(shen)(shen)(shen)(shen)(shen)查(cha)糾正(zheng)法(fa)律(lv)(lv)適用(yong)錯(cuo)誤，重點發揮(hui)統一(yi)全(quan)國(guo)法(fa)律(lv)(lv)適用(yong)、監督(du)指(zhi)導全(quan)國(guo)法(fa)院(yuan)(yuan)審(shen)(shen)(shen)(shen)(shen)(shen)判(pan)工(gong)(gong)作(zuo)職(zhi)(zhi)能。三是配套完善(shan)案(an)(an)件(jian)(jian)提級(ji)管轄(xia)機制，推動(dong)具(ju)有普遍法(fa)律(lv)(lv)適用(yong)指(zhi)導意義或者關乎重大國(guo)家利益、社會(hui)公共(gong)利益的(de)案(an)(an)件(jian)(jian)，以及可(ke)能存(cun)在“訴(su)訟(song)主客場”現(xian)象的(de)案(an)(an)件(jian)(jian)，主要由(you)較高(gao)層級(ji)法(fa)院(yuan)(yuan)審(shen)(shen)(shen)(shen)(shen)(shen)理，實(shi)現(xian)審(shen)(shen)(shen)(shen)(shen)(shen)判(pan)資源(yuan)、案(an)(an)件(jian)(jian)結(jie)構與四(si)(si)級(ji)法(fa)院(yuan)(yuan)職(zhi)(zhi)能定位科(ke)學匹配。
試點(dian)工(gong)作啟動以(yi)來(lai)，最高人(ren)民法(fa)(fa)院建立了試點(dian)督導落實、情況(kuang)收集(ji)反饋、數據統計匯總、文(wen)件(jian)審查備案、聯席工(gong)作會議、政策解讀宣傳6項(xiang)(xiang)工(gong)作機制，制定印發25個試點(dian)配套規(gui)范性(xing)文(wen)件(jian)，指導各試點(dian)法(fa)(fa)院嚴格落實《授權決定》要求，扎實推進試點(dian)各項(xiang)(xiang)工(gong)作，有效確(que)保試點(dian)工(gong)作因(yin)地制宜(yi)、精(jing)準落地。
二、試點工作的階段性成效
經過近(jin)一(yi)年探(tan)索(suo)，四級法(fa)院審級職能逐步優化，案(an)件(jian)結構和分布日趨(qu)合理，司法(fa)職權配(pei)置更加科學(xue)，矛盾糾紛化解質效有(you)效提升，人(ren)民(min)群眾(zhong)對公平(ping)正義的獲得感不斷增強。實踐充(chong)分證(zheng)明，黨中央決(jue)策部署和全國(guo)人(ren)大常(chang)委會授權決(jue)定是完全正確的。
一(yi)(yi)(yi)是審(shen)(shen)(shen)判(pan)重心合理(li)下(xia)(xia)(xia)(xia)(xia)沉(chen)，推動矛(mao)盾糾(jiu)紛(fen)在基層(ceng)實現公(gong)正高(gao)(gao)效實質性(xing)化解。民(min)(min)(min)事(shi)(shi)、行(xing)政(zheng)(zheng)級(ji)(ji)別管轄標準調(diao)整(zheng)后，各(ge)試點(dian)(dian)(dian)法(fa)(fa)(fa)院(yuan)(yuan)受理(li)“下(xia)(xia)(xia)(xia)(xia)沉(chen)”的(de)民(min)(min)(min)事(shi)(shi)、行(xing)政(zheng)(zheng)一(yi)(yi)(yi)審(shen)(shen)(shen)案(an)(an)(an)(an)(an)(an)件(jian)(jian)(jian)(jian)數量(liang)(liang)增幅(fu)有限(xian)，審(shen)(shen)(shen)判(pan)質量(liang)(liang)保(bao)持穩中(zhong)向好。試點(dian)(dian)(dian)基層(ceng)人(ren)(ren)民(min)(min)(min)法(fa)(fa)(fa)院(yuan)(yuan)共受理(li)“下(xia)(xia)(xia)(xia)(xia)沉(chen)”的(de)民(min)(min)(min)事(shi)(shi)案(an)(an)(an)(an)(an)(an)件(jian)(jian)(jian)(jian)9570件(jian)(jian)(jian)(jian)，僅占同(tong)(tong)期全(quan)部新收一(yi)(yi)(yi)審(shen)(shen)(shen)民(min)(min)(min)事(shi)(shi)案(an)(an)(an)(an)(an)(an)件(jian)(jian)(jian)(jian)的(de)0.15%，一(yi)(yi)(yi)審(shen)(shen)(shen)民(min)(min)(min)事(shi)(shi)案(an)(an)(an)(an)(an)(an)件(jian)(jian)(jian)(jian)上訴率(lv)、二(er)審(shen)(shen)(shen)改發(fa)率(lv)分別為8.73%、1.25%，較試點(dian)(dian)(dian)前同(tong)(tong)比(bi)分別下(xia)(xia)(xia)(xia)(xia)降(jiang)0.2、0.04個(ge)(ge)百分點(dian)(dian)(dian)；受理(li)“下(xia)(xia)(xia)(xia)(xia)沉(chen)”的(de)四類(lei)(lei)行(xing)政(zheng)(zheng)案(an)(an)(an)(an)(an)(an)件(jian)(jian)(jian)(jian)11275件(jian)(jian)(jian)(jian)，占一(yi)(yi)(yi)審(shen)(shen)(shen)行(xing)政(zheng)(zheng)案(an)(an)(an)(an)(an)(an)件(jian)(jian)(jian)(jian)的(de)6.76%，其中(zhong)已審(shen)(shen)(shen)結7545件(jian)(jian)(jian)(jian)，二(er)審(shen)(shen)(shen)改發(fa)率(lv)1.74%，較試點(dian)(dian)(dian)初期前三(san)個(ge)(ge)月下(xia)(xia)(xia)(xia)(xia)降(jiang)0.26個(ge)(ge)百分點(dian)(dian)(dian)，審(shen)(shen)(shen)判(pan)質量(liang)(liang)穩步提升。按(an)照中(zhong)央司(si)(si)法(fa)(fa)(fa)體制(zhi)改革部署，最(zui)高(gao)(gao)人(ren)(ren)民(min)(min)(min)法(fa)(fa)(fa)院(yuan)(yuan)積極(ji)(ji)推進完(wan)善司(si)(si)法(fa)(fa)(fa)權制(zhi)約監(jian)督(du)機制(zhi)，加(jia)強(qiang)(qiang)(qiang)(qiang)對(dui)下(xia)(xia)(xia)(xia)(xia)指(zhi)導(dao)，增強(qiang)(qiang)(qiang)(qiang)司(si)(si)法(fa)(fa)(fa)能(neng)力，防范廉政(zheng)(zheng)風險。各(ge)高(gao)(gao)級(ji)(ji)人(ren)(ren)民(min)(min)(min)法(fa)(fa)(fa)院(yuan)(yuan)積極(ji)(ji)爭取省級(ji)(ji)組織部門(men)、機構編(bian)制(zhi)部門(men)支持，推動編(bian)制(zhi)、員額配置向基層(ceng)和辦(ban)(ban)(ban)案(an)(an)(an)(an)(an)(an)一(yi)(yi)(yi)線傾斜。各(ge)高(gao)(gao)、中(zhong)級(ji)(ji)人(ren)(ren)民(min)(min)(min)法(fa)(fa)(fa)院(yuan)(yuan)通(tong)過(guo)專題培訓、典型(xing)(xing)案(an)(an)(an)(an)(an)(an)例、審(shen)(shen)(shen)判(pan)指(zhi)引等(deng)方式，加(jia)強(qiang)(qiang)(qiang)(qiang)對(dui)下(xia)(xia)(xia)(xia)(xia)審(shen)(shen)(shen)判(pan)業(ye)務(wu)指(zhi)導(dao)。基層(ceng)人(ren)(ren)民(min)(min)(min)法(fa)(fa)(fa)院(yuan)(yuan)積極(ji)(ji)參與(yu)訴源治理(li)、深(shen)化案(an)(an)(an)(an)(an)(an)件(jian)(jian)(jian)(jian)繁簡分流(liu)、加(jia)強(qiang)(qiang)(qiang)(qiang)案(an)(an)(an)(an)(an)(an)件(jian)(jian)(jian)(jian)質效監(jian)控。上海高(gao)(gao)院(yuan)(yuan)將四類(lei)(lei)行(xing)政(zheng)(zheng)案(an)(an)(an)(an)(an)(an)件(jian)(jian)(jian)(jian)辦(ban)(ban)(ban)案(an)(an)(an)(an)(an)(an)指(zhi)南嵌入審(shen)(shen)(shen)判(pan)業(ye)務(wu)平臺，加(jia)強(qiang)(qiang)(qiang)(qiang)辦(ban)(ban)(ban)案(an)(an)(an)(an)(an)(an)流(liu)程(cheng)管理(li)。天津各(ge)中(zhong)院(yuan)(yuan)圍繞建(jian)設(she)工(gong)程(cheng)合同(tong)(tong)、買賣(mai)合同(tong)(tong)、破產強(qiang)(qiang)(qiang)(qiang)制(zhi)清算、民(min)(min)(min)間借貸(dai)等(deng)案(an)(an)(an)(an)(an)(an)件(jian)(jian)(jian)(jian)，出臺類(lei)(lei)案(an)(an)(an)(an)(an)(an)辦(ban)(ban)(ban)理(li)指(zhi)引，統一(yi)(yi)(yi)裁量(liang)(liang)尺度。陜(shan)西高(gao)(gao)院(yuan)(yuan)與(yu)當(dang)地行(xing)政(zheng)(zheng)機關(guan)聯合發(fa)布(bu)政(zheng)(zheng)府信息依申請公(gong)開典型(xing)(xing)案(an)(an)(an)(an)(an)(an)例，指(zhi)導(dao)基層(ceng)人(ren)(ren)民(min)(min)(min)法(fa)(fa)(fa)院(yuan)(yuan)提高(gao)(gao)案(an)(an)(an)(an)(an)(an)件(jian)(jian)(jian)(jian)辦(ban)(ban)(ban)理(li)質量(liang)(liang)。浙江寧波(bo)中(zhong)院(yuan)(yuan)要求轄區基層(ceng)人(ren)(ren)民(min)(min)(min)法(fa)(fa)(fa)院(yuan)(yuan)對(dui)“下(xia)(xia)(xia)(xia)(xia)沉(chen)”案(an)(an)(an)(an)(an)(an)件(jian)(jian)(jian)(jian)一(yi)(yi)(yi)律適用普通(tong)程(cheng)序審(shen)(shen)(shen)理(li)，并由院(yuan)(yuan)庭長擔任審(shen)(shen)(shen)判(pan)長，配齊配強(qiang)(qiang)(qiang)(qiang)審(shen)(shen)(shen)判(pan)力量(liang)(liang)，確保(bao)案(an)(an)(an)(an)(an)(an)件(jian)(jian)(jian)(jian)質量(liang)(liang)過(guo)硬。
二是提(ti)(ti)級(ji)(ji)(ji)管轄機(ji)制(zhi)有(you)效激活，高(gao)(gao)、中級(ji)(ji)(ji)人(ren)民(min)法院審(shen)(shen)(shen)(shen)理(li)(li)重(zhong)大(da)(da)典型(xing)一(yi)(yi)(yi)審(shen)(shen)(shen)(shen)案(an)(an)件(jian)(jian)職(zhi)能作用(yong)(yong)更加凸顯。各試點地區高(gao)(gao)、中級(ji)(ji)(ji)人(ren)民(min)法院完善提(ti)(ti)級(ji)(ji)(ji)管轄機(ji)制(zhi)，細化(hua)(hua)提(ti)(ti)級(ji)(ji)(ji)管轄標準，規(gui)范工(gong)作流程，配套(tao)完善繁(fan)案(an)(an)精審(shen)(shen)(shen)(shen)、類(lei)案(an)(an)同(tong)(tong)判(pan)、風(feng)險防控(kong)、案(an)(an)例轉(zhuan)化(hua)(hua)等(deng)(deng)機(ji)制(zhi)，有(you)效推動涉(she)及重(zhong)大(da)(da)利益、具有(you)普遍法律(lv)適(shi)用(yong)(yong)指導(dao)意(yi)義(yi)、存(cun)在重(zhong)大(da)(da)法律(lv)適(shi)用(yong)(yong)分歧、可能存(cun)在不(bu)當干(gan)預、疑難(nan)復(fu)雜新類(lei)型(xing)的(de)一(yi)(yi)(yi)審(shen)(shen)(shen)(shen)案(an)(an)件(jian)(jian)由高(gao)(gao)、中級(ji)(ji)(ji)人(ren)民(min)法院審(shen)(shen)(shen)(shen)理(li)(li)，實(shi)(shi)現案(an)(an)件(jian)(jian)有(you)上有(you)下、良性運轉(zhuan)。試點以來，各高(gao)(gao)、中級(ji)(ji)(ji)人(ren)民(min)法院共(gong)提(ti)(ti)級(ji)(ji)(ji)管轄案(an)(an)件(jian)(jian)435件(jian)(jian)，同(tong)(tong)比增長19.50%，其中23.70%的(de)案(an)(an)件(jian)(jian)涉(she)及重(zhong)大(da)(da)國家利益、社會公共(gong)利益，33.96%的(de)案(an)(an)件(jian)(jian)屬于在轄區內類(lei)型(xing)較(jiao)新、疑難(nan)復(fu)雜的(de)案(an)(an)件(jian)(jian)，34.91%的(de)案(an)(an)件(jian)(jian)具有(you)普遍法律(lv)適(shi)用(yong)(yong)指導(dao)意(yi)義(yi)，提(ti)(ti)級(ji)(ji)(ji)管轄的(de)案(an)(an)件(jian)(jian)涉(she)及數據權利確權、網(wang)絡不(bu)正當競爭、新業態用(yong)(yong)工(gong)主(zhu)體(ti)資格(ge)、“雙(shuang)減”政策下教育培訓合同(tong)(tong)效力等(deng)(deng)法律(lv)問題，涵蓋民(min)事、行政、知識產(chan)權等(deng)(deng)領域。廣東高(gao)(gao)院建立全省(sheng)重(zhong)點案(an)(an)件(jian)(jian)逐案(an)(an)跟(gen)蹤指導(dao)制(zhi)度，扎實(shi)(shi)做好提(ti)(ti)級(ji)(ji)(ji)管轄案(an)(an)件(jian)(jian)的(de)審(shen)(shen)(shen)(shen)查(cha)(cha)審(shen)(shen)(shen)(shen)理(li)(li)和風(feng)險防范工(gong)作。重(zhong)慶高(gao)(gao)院對(dui)報請提(ti)(ti)級(ji)(ji)(ji)管轄案(an)(an)件(jian)(jian)探索要素式審(shen)(shen)(shen)(shen)查(cha)(cha)，突(tu)出報請理(li)(li)由、審(shen)(shen)(shen)(shen)查(cha)(cha)意(yi)見等(deng)(deng)關鍵(jian)要素，有(you)效提(ti)(ti)升審(shen)(shen)(shen)(shen)查(cha)(cha)效率。四川(chuan)高(gao)(gao)院將審(shen)(shen)(shen)(shen)結的(de)提(ti)(ti)級(ji)(ji)(ji)管轄典型(xing)案(an)(an)件(jian)(jian)及時(shi)轉(zhuan)化(hua)(hua)為參考性案(an)(an)例，相關規(gui)則納入審(shen)(shen)(shen)(shen)判(pan)業務(wu)指導(dao)文(wen)件(jian)(jian)，實(shi)(shi)現審(shen)(shen)(shen)(shen)理(li)(li)一(yi)(yi)(yi)件(jian)(jian)、指導(dao)一(yi)(yi)(yi)片(pian)。
三是再(zai)(zai)審(shen)(shen)(shen)(shen)程序(xu)(xu)運(yun)行機制(zhi)(zhi)持(chi)續完善，實現(xian)再(zai)(zai)審(shen)(shen)(shen)(shen)依(yi)法(fa)糾(jiu)(jiu)錯(cuo)(cuo)與維(wei)護生效(xiao)裁(cai)判(pan)(pan)(pan)權(quan)威相(xiang)統一。按照試(shi)(shi)點工作(zuo)要求(qiu)，最(zui)(zui)高(gao)(gao)人民(min)(min)法(fa)院(yuan)(yuan)和(he)(he)(he)高(gao)(gao)級(ji)人民(min)(min)法(fa)院(yuan)(yuan)推動完善再(zai)(zai)審(shen)(shen)(shen)(shen)程序(xu)(xu)運(yun)行機制(zhi)(zhi)，案(an)(an)(an)件(jian)(jian)(jian)數量結構(gou)(gou)不(bu)斷優化(hua)(hua)，再(zai)(zai)審(shen)(shen)(shen)(shen)糾(jiu)(jiu)錯(cuo)(cuo)能(neng)力水(shui)平穩步(bu)提升。試(shi)(shi)點以(yi)來(lai)，最(zui)(zui)高(gao)(gao)人民(min)(min)法(fa)院(yuan)(yuan)新收(shou)民(min)(min)事、行政(zheng)申(shen)(shen)(shen)請(qing)(qing)再(zai)(zai)審(shen)(shen)(shen)(shen)審(shen)(shen)(shen)(shen)查(cha)案(an)(an)(an)件(jian)(jian)(jian)2275件(jian)(jian)(jian)，較試(shi)(shi)點前下降85.33%，占全(quan)(quan)部民(min)(min)事、行政(zheng)案(an)(an)(an)件(jian)(jian)(jian)比例從試(shi)(shi)點前63.93%降至19.36%，案(an)(an)(an)件(jian)(jian)(jian)數量結構(gou)(gou)明(ming)顯優化(hua)(hua)，有效(xiao)解(jie)決再(zai)(zai)審(shen)(shen)(shen)(shen)申(shen)(shen)(shen)請(qing)(qing)濫訴和(he)(he)(he)審(shen)(shen)(shen)(shen)查(cha)程序(xu)(xu)空轉(zhuan)問題。各高(gao)(gao)級(ji)人民(min)(min)法(fa)院(yuan)(yuan)根據(ju)試(shi)(shi)點工作(zuo)要求(qiu)，優化(hua)(hua)再(zai)(zai)審(shen)(shen)(shen)(shen)職權(quan)配置(zhi)，普遍采取“終審(shen)(shen)(shen)(shen)審(shen)(shen)(shen)(shen)理(li)和(he)(he)(he)再(zai)(zai)審(shen)(shen)(shen)(shen)申(shen)(shen)(shen)請(qing)(qing)審(shen)(shen)(shen)(shen)查(cha)相(xiang)分離”的(de)(de)模(mo)式(shi)，強(qiang)化(hua)(hua)再(zai)(zai)審(shen)(shen)(shen)(shen)程序(xu)(xu)制(zhi)(zhi)約監督(du)，有效(xiao)提升再(zai)(zai)審(shen)(shen)(shen)(shen)申(shen)(shen)(shen)請(qing)(qing)審(shen)(shen)(shen)(shen)查(cha)質(zhi)效(xiao)。試(shi)(shi)點以(yi)來(lai)，各高(gao)(gao)級(ji)人民(min)(min)法(fa)院(yuan)(yuan)受理(li)申(shen)(shen)(shen)請(qing)(qing)再(zai)(zai)審(shen)(shen)(shen)(shen)審(shen)(shen)(shen)(shen)查(cha)案(an)(an)(an)件(jian)(jian)(jian)249323件(jian)(jian)(jian)，其中(zhong)受理(li)不(bu)服(fu)本(ben)院(yuan)(yuan)終審(shen)(shen)(shen)(shen)民(min)(min)事、行政(zheng)案(an)(an)(an)件(jian)(jian)(jian)的(de)(de)再(zai)(zai)審(shen)(shen)(shen)(shen)申(shen)(shen)(shen)請(qing)(qing)16094件(jian)(jian)(jian)，包括(kuo)最(zui)(zui)高(gao)(gao)人民(min)(min)法(fa)院(yuan)(yuan)“下交(jiao)”的(de)(de)再(zai)(zai)審(shen)(shen)(shen)(shen)申(shen)(shen)(shen)請(qing)(qing)5428件(jian)(jian)(jian)，“下交(jiao)”案(an)(an)(an)件(jian)(jian)(jian)僅占全(quan)(quan)部申(shen)(shen)(shen)請(qing)(qing)再(zai)(zai)審(shen)(shen)(shen)(shen)審(shen)(shen)(shen)(shen)查(cha)案(an)(an)(an)件(jian)(jian)(jian)的(de)(de)2.18%。各高(gao)(gao)級(ji)人民(min)(min)法(fa)院(yuan)(yuan)對不(bu)服(fu)本(ben)院(yuan)(yuan)終審(shen)(shen)(shen)(shen)民(min)(min)事、行政(zheng)案(an)(an)(an)件(jian)(jian)(jian)的(de)(de)再(zai)(zai)審(shen)(shen)(shen)(shen)申(shen)(shen)(shen)請(qing)(qing)裁(cai)定(ding)再(zai)(zai)審(shen)(shen)(shen)(shen)率(lv)為(wei)9.08%，裁(cai)定(ding)再(zai)(zai)審(shen)(shen)(shen)(shen)案(an)(an)(an)件(jian)(jian)(jian)改(gai)(gai)判(pan)(pan)(pan)率(lv)為(wei)28.18%，比同期辦理(li)的(de)(de)不(bu)服(fu)下級(ji)法(fa)院(yuan)(yuan)民(min)(min)事、行政(zheng)生效(xiao)裁(cai)判(pan)(pan)(pan)申(shen)(shen)(shen)請(qing)(qing)再(zai)(zai)審(shen)(shen)(shen)(shen)審(shen)(shen)(shen)(shen)查(cha)和(he)(he)(he)再(zai)(zai)審(shen)(shen)(shen)(shen)案(an)(an)(an)件(jian)(jian)(jian)分別高(gao)(gao)出3.37、6.55個百分點，未出現(xian)“高(gao)(gao)駁回(hui)率(lv)”和(he)(he)(he)“高(gao)(gao)維(wei)持(chi)率(lv)”等現(xian)象，有效(xiao)發揮(hui)再(zai)(zai)審(shen)(shen)(shen)(shen)依(yi)法(fa)糾(jiu)(jiu)錯(cuo)(cuo)功能(neng)。浙江高(gao)(gao)院(yuan)(yuan)將本(ben)院(yuan)(yuan)生效(xiao)裁(cai)判(pan)(pan)(pan)的(de)(de)再(zai)(zai)審(shen)(shen)(shen)(shen)申(shen)(shen)(shen)請(qing)(qing)審(shen)(shen)(shen)(shen)查(cha)、再(zai)(zai)審(shen)(shen)(shen)(shen)案(an)(an)(an)件(jian)(jian)(jian)審(shen)(shen)(shen)(shen)理(li)納(na)入“四類(lei)案(an)(an)(an)件(jian)(jian)(jian)”監管，明(ming)確擬改(gai)(gai)判(pan)(pan)(pan)案(an)(an)(an)件(jian)(jian)(jian)應當(dang)由院(yuan)(yuan)長提交(jiao)審(shen)(shen)(shen)(shen)判(pan)(pan)(pan)委員會討論(lun)。山東高(gao)(gao)院(yuan)(yuan)修改(gai)(gai)法(fa)官績(ji)效(xiao)考(kao)核(he)(he)辦法(fa)，明(ming)確本(ben)院(yuan)(yuan)生效(xiao)裁(cai)判(pan)(pan)(pan)再(zai)(zai)審(shen)(shen)(shen)(shen)申(shen)(shen)(shen)請(qing)(qing)審(shen)(shen)(shen)(shen)查(cha)案(an)(an)(an)件(jian)(jian)(jian)權(quan)重系數及考(kao)核(he)(he)方式(shi)，建立再(zai)(zai)審(shen)(shen)(shen)(shen)糾(jiu)(jiu)錯(cuo)(cuo)激勵機制(zhi)(zhi)。
四是最高(gao)(gao)審(shen)判(pan)(pan)機(ji)關(guan)職(zhi)能定位不斷優(you)化(hua)，更(geng)好履(lv)行(xing)(xing)憲法(fa)(fa)法(fa)(fa)律(lv)賦予(yu)的職(zhi)責。最高(gao)(gao)人(ren)民法(fa)(fa)院優(you)化(hua)審(shen)判(pan)(pan)權(quan)力運(yun)行(xing)(xing)機(ji)制(zhi)，建立高(gao)(gao)級人(ren)民法(fa)(fa)院報請再審(shen)提審(shen)工作(zuo)(zuo)機(ji)制(zhi)，完善繁案(an)(an)精審(shen)模式，加(jia)大(da)(da)重(zhong)大(da)(da)典型(xing)案(an)(an)件辦理力度(du)，健全(quan)統一法(fa)(fa)律(lv)適(shi)(shi)用(yong)機(ji)制(zhi)，強化(hua)對全(quan)國法(fa)(fa)院審(shen)判(pan)(pan)工作(zuo)(zuo)監督指導。試點以來，最高(gao)(gao)人(ren)民法(fa)(fa)院審(shen)結民事(shi)、行(xing)(xing)政(zheng)二審(shen)案(an)(an)件2712件，再審(shen)提審(shen)案(an)(an)件625件，解決(jue)(jue)了算(suan)法(fa)(fa)發(fa)明專利無(wu)效(xiao)的判(pan)(pan)斷標準、橫(heng)向(xiang)壟斷協(xie)議行(xing)(xing)政(zheng)處(chu)罰的計罰基數、授益行(xing)(xing)政(zheng)行(xing)(xing)為中授益相(xiang)對人(ren)的權(quan)利義務等一批法(fa)(fa)律(lv)適(shi)(shi)用(yong)問(wen)題(ti)。出臺(tai)涉及人(ren)身安全(quan)保護令、網絡消(xiao)費、反不正當競爭、證券市場虛假陳述(shu)侵(qin)權(quan)民事(shi)賠(pei)償、生(sheng)態(tai)環(huan)境(jing)侵(qin)權(quan)糾紛懲罰性(xing)(xing)賠(pei)償、海洋自然資(zi)源與生(sheng)態(tai)環(huan)境(jing)公益訴訟等司法(fa)(fa)解釋(shi)25個(ge)，發(fa)布3批20件指導性(xing)(xing)案(an)(an)例(li)。召(zhao)開跨領域(yu)專業(ye)法(fa)(fa)官會(hui)議7次，有(you)效(xiao)解決(jue)(jue)重(zhong)大(da)(da)法(fa)(fa)律(lv)適(shi)(shi)用(yong)分歧20余個(ge)。建立審(shen)判(pan)(pan)業(ye)務文件、參(can)考(kao)性(xing)(xing)案(an)(an)例(li)審(shen)查備案(an)(an)制(zhi)度(du)，審(shen)查地(di)方法(fa)(fa)院審(shen)判(pan)(pan)業(ye)務文件162個(ge)、參(can)考(kao)性(xing)(xing)案(an)(an)例(li)219件，確保法(fa)(fa)律(lv)適(shi)(shi)用(yong)標準統一。
五是當(dang)事(shi)(shi)(shi)人(ren)(ren)訴(su)訟(song)權(quan)利(li)(li)得(de)到(dao)充(chong)分(fen)(fen)保障(zhang)，人(ren)(ren)民(min)(min)群(qun)眾(zhong)(zhong)改革獲得(de)感(gan)不斷提(ti)(ti)升。充(chong)分(fen)(fen)尊重保障(zhang)當(dang)事(shi)(shi)(shi)人(ren)(ren)程(cheng)序選(xuan)擇(ze)權(quan)、利(li)(li)益處(chu)分(fen)(fen)權(quan)、訴(su)訟(song)知情權(quan)和權(quan)利(li)(li)救濟(ji)權(quan)，提(ti)(ti)高訴(su)訟(song)服務水平，審(shen)(shen)判質量、效(xiao)率和公信力不斷提(ti)(ti)升，更好滿足人(ren)(ren)民(min)(min)群(qun)眾(zhong)(zhong)新(xin)要(yao)求新(xin)期待。針對級別管(guan)轄(xia)(xia)(xia)調(diao)整，各地(di)法(fa)院(yuan)(yuan)細化明確案件管(guan)轄(xia)(xia)(xia)清單，強化立(li)案告(gao)知和法(fa)官釋(shi)明，依法(fa)公正審(shen)(shen)理當(dang)事(shi)(shi)(shi)人(ren)(ren)管(guan)轄(xia)(xia)(xia)權(quan)異議，加強當(dang)事(shi)(shi)(shi)人(ren)(ren)訴(su)權(quan)保障(zhang)。針對提(ti)(ti)級管(guan)轄(xia)(xia)(xia)機(ji)制(zhi)，北京、江蘇等地(di)高院(yuan)(yuan)建立(li)當(dang)事(shi)(shi)(shi)人(ren)(ren)申(shen)(shen)(shen)請提(ti)(ti)級管(guan)轄(xia)(xia)(xia)機(ji)制(zhi)，充(chong)分(fen)(fen)發揮當(dang)事(shi)(shi)(shi)人(ren)(ren)參(can)與和監督作用。針對再(zai)(zai)審(shen)(shen)程(cheng)序改革，尊重當(dang)事(shi)(shi)(shi)人(ren)(ren)對再(zai)(zai)審(shen)(shen)申(shen)(shen)(shen)請提(ti)(ti)交法(fa)院(yuan)(yuan)的(de)選(xuan)擇(ze)權(quan)，嚴禁各地(di)法(fa)院(yuan)(yuan)擅自(zi)“下(xia)交”再(zai)(zai)審(shen)(shen)申(shen)(shen)(shen)請審(shen)(shen)查，杜絕“該立(li)不立(li)”、“敷衍推諉”等問題(ti)發生。河(he)南高院(yuan)(yuan)暢(chang)通引導(dao)民(min)(min)事(shi)(shi)(shi)涉訴(su)信訪導(dao)入(ru)申(shen)(shen)(shen)請再(zai)(zai)審(shen)(shen)的(de)良性軌道，保障(zhang)當(dang)事(shi)(shi)(shi)人(ren)(ren)申(shen)(shen)(shen)請再(zai)(zai)審(shen)(shen)權(quan)利(li)(li)。遼(liao)寧(ning)等地(di)高院(yuan)(yuan)健全法(fa)律援(yuan)助(zhu)機(ji)制(zhi)，會同司法(fa)行(xing)政(zheng)部門法(fa)律援(yuan)助(zhu)機(ji)構幫助(zhu)當(dang)事(shi)(shi)(shi)人(ren)(ren)便捷、高效(xiao)、充(chong)分(fen)(fen)行(xing)使申(shen)(shen)(shen)請再(zai)(zai)審(shen)(shen)權(quan)利(li)(li)。
三、試點工作存在的問題和困難
當前，改(gai)革試點還存在一些問題和困(kun)難(nan)亟(ji)待解決。
一是試(shi)點法院(yuan)工作(zuo)(zuo)開展不(bu)平衡。有(you)(you)的(de)法院(yuan)在落(luo)實改(gai)(gai)革(ge)(ge)任務(wu)上存在“溫差”、“落(luo)差”，有(you)(you)針對性的(de)改(gai)(gai)革(ge)(ge)舉措(cuo)還(huan)不(bu)多。有(you)(you)的(de)簡單照搬上級法院(yuan)工作(zuo)(zuo)舉措(cuo)，在落(luo)實級別管轄調整(zheng)、提級管轄機(ji)制等改(gai)(gai)革(ge)(ge)舉措(cuo)時，未充分結(jie)合本地實際(ji)進行細化完善(shan)。有(you)(you)的(de)對試(shi)點明確(que)的(de)新程(cheng)序規則理解有(you)(you)偏差，習慣沿用老辦法，探(tan)索(suo)創新不(bu)夠。
二(er)是(shi)試點(dian)(dian)效果有(you)待進一步提升。受新冠肺炎疫情、舊(jiu)存積(ji)案(an)和結案(an)周期等(deng)因素影響，最高人民法院裁定(ding)提審(shen)(shen)案(an)件審(shen)(shen)結數(shu)量不多，重大典型案(an)件示范效果和指(zhi)導(dao)作用(yong)有(you)待進一步強化。此(ci)外，從提級(ji)管轄(xia)、一審(shen)(shen)審(shen)(shen)理、案(an)件上訴、再審(shen)(shen)申請審(shen)(shen)查到再審(shen)(shen)審(shen)(shen)理需要(yao)經(jing)過(guo)一個(ge)較(jiao)長過(guo)程(cheng)，試點(dian)(dian)整體(ti)效果還(huan)有(you)待充分顯現(xian)。
三是配套保障(zhang)機制(zhi)仍(reng)需不斷完(wan)善(shan)。重(zhong)大典(dian)型案(an)(an)件的(de)(de)發(fa)現機制(zhi)不健全，存在(zai)(zai)渠道單一(yi)化(hua)、標準不統一(yi)、識別不精準等(deng)問題，上下級(ji)法(fa)院在(zai)(zai)信息共享、溝通協(xie)調、程序銜接、案(an)(an)件流(liu)轉(zhuan)等(deng)方面的(de)(de)工作機制(zhi)還(huan)有(you)待(dai)完(wan)善(shan)。部(bu)分法(fa)院未(wei)(wei)根據試點后(hou)案(an)(an)件數量(liang)結構、工作強(qiang)(qiang)度、職(zhi)權配置等(deng)變化(hua)，優(you)化(hua)調整審判業績考核體系(xi)，導致(zhi)激勵約束機制(zhi)不足(zu)。相關改革系(xi)統集(ji)成(cheng)有(you)待(dai)加強(qiang)(qiang)，訴(su)訟收費(fei)與(yu)四級(ji)法(fa)院審級(ji)職(zhi)能、程序類型還(huan)沒有(you)形(xing)成(cheng)合(he)理(li)匹配，再(zai)審預收費(fei)制(zhi)度尚(shang)未(wei)(wei)建立，杠桿調節作用發(fa)揮不充分，一(yi)定程度影響了改革效(xiao)果。
四、下一步工作舉措
目前，四(si)(si)級法院審(shen)(shen)級職能定位改革試(shi)(shi)點(dian)進入改革攻堅(jian)的關鍵期，推進各(ge)項(xiang)工作任(ren)務艱巨、責任(ren)重大。最高人民(min)法院將堅(jian)持以習近平新時代中(zhong)國特色社會主義思想為指導，深(shen)入貫徹習近平法治思想，深(shen)刻領悟“兩個(ge)確立”的決定性(xing)意義，增強“四(si)(si)個(ge)意識”、堅(jian)定“四(si)(si)個(ge)自信”、做(zuo)到“兩個(ge)維(wei)護”，緊緊依靠全國人大及其常委會的監督和支持，進一(yi)步深(shen)入推進試(shi)(shi)點(dian)工作，確保圓滿(man)完(wan)成試(shi)(shi)點(dian)任(ren)務，推動完(wan)善具有中(zhong)國特色、符(fu)合(he)司法規律的審(shen)(shen)級制度(du)。
一是(shi)強化統籌指導，推(tui)(tui)動(dong)試點(dian)(dian)工作均衡發展(zhan)。進(jin)一步健全(quan)試點(dian)(dian)工作推(tui)(tui)進(jin)機制，切實(shi)發揮最高人(ren)民法院(yuan)牽頭抓總、統籌管理、協同(tong)(tong)推(tui)(tui)進(jin)職(zhi)能，壓實(shi)各(ge)高級人(ren)民法院(yuan)改革主(zhu)體責(ze)任(ren)。會同(tong)(tong)有關部(bu)門開展(zhan)調查(cha)研究、督促檢查(cha)和實(shi)效評(ping)估，及時(shi)完善(shan)試點(dian)(dian)政策(ce)，糾正工作偏差，推(tui)(tui)動(dong)解決(jue)部(bu)分法院(yuan)工作滯后、效果(guo)不突出等問題(ti)。
二是健(jian)全配(pei)套(tao)保障，鞏固提升試點工作成效。密切(qie)跟蹤試點法院整體(ti)審(shen)(shen)判運行態勢，強化審(shen)(shen)判條線業務(wu)指(zhi)導和專項培訓，加(jia)強基層人民法院案(an)件(jian)質(zhi)效監督管(guan)理(li)。健(jian)全重(zhong)大典型(xing)案(an)件(jian)發現、識別和篩選機制，完(wan)(wan)善(shan)類案(an)檢(jian)索(suo)平(ping)臺功能，推(tui)(tui)動精準(zhun)識別法律適用不統一問題(ti)。建立(li)申請(qing)再(zai)審(shen)(shen)審(shen)(shen)查案(an)件(jian)和再(zai)審(shen)(shen)案(an)件(jian)專項管(guan)理(li)機制，確保重(zhong)大典型(xing)案(an)件(jian)辦(ban)理(li)及時、質(zhi)量過硬。協調有關部門(men)修改(gai)完(wan)(wan)善(shan)《訴訟費(fei)用交納辦(ban)法》，推(tui)(tui)動建立(li)再(zai)審(shen)(shen)預收費(fei)制度，促進增強改(gai)革系統集成效應。
三是系(xi)統總(zong)結(jie)經驗，適時(shi)提(ti)出完善立(li)法(fa)建(jian)議。以本次中期報告(gao)為契機，認(ren)真做好(hao)試點(dian)工作的(de)情況分析和經驗總(zong)結(jie)，為民(min)事(shi)、行政訴訟法(fa)修(xiu)改提(ti)供有(you)力(li)的(de)實證(zheng)基礎。嚴(yan)格按照立(li)法(fa)工作有(you)關程序和要求，深(shen)入開(kai)展修(xiu)法(fa)研(yan)究論證(zheng)工作，廣泛(fan)聽取各(ge)方面意(yi)見建(jian)議，適時(shi)提(ti)出切合實際的(de)高質量修(xiu)法(fa)建(jian)議。
委(wei)員(yuan)長、各位(wei)副委(wei)員(yuan)長、秘書長、各位(wei)委(wei)員(yuan)，全國(guo)人(ren)大常(chang)委(wei)會(hui)專門聽(ting)取和(he)審(shen)(shen)議四(si)級(ji)法(fa)(fa)院審(shen)(shen)級(ji)職能定位(wei)改革試點工作(zuo)(zuo)情況的(de)(de)中(zhong)期報(bao)告，充分體(ti)現了對改革試點工作(zuo)(zuo)的(de)(de)高度重視(shi)和(he)關心支持。我們將在以習近平(ping)同志為核(he)心的(de)(de)黨中(zhong)央堅強(qiang)領導下(xia)，在全國(guo)人(ren)大及其常(chang)委(wei)會(hui)有(you)力監督下(xia)，深入(ru)貫徹(che)落實(shi)《改革方案》、《授權(quan)決定》和(he)《試點實(shi)施(shi)辦法(fa)(fa)》要求，認真落實(shi)本次會(hui)議審(shen)(shen)議意(yi)見，埋(mai)頭苦干、勇(yong)毅(yi)前行(xing)，確保試點工作(zuo)(zuo)取得良好效(xiao)果，努(nu)力讓人(ren)民群眾在每一(yi)個司(si)法(fa)(fa)案件中(zhong)感受到公平(ping)正義，為全面建設(she)社會(hui)主義現代化國(guo)家作(zuo)(zuo)出新的(de)(de)更(geng)大貢獻，以實(shi)際行(xing)動迎接(jie)黨的(de)(de)二十(shi)大勝利(li)召開(kai)。
日期：2022-9-5 10:34:49 | 關閉 |
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