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Notice of the Supreme People's Court on Issuing the Third Five-Year Reform Outline for the People's Courts (2009-2013) [Effective]
最高人民法院关于印发《人民法院第三个五年改革纲要(2009-2013)》的通知 [现行有效]
【法宝引证码】

 
Notice of the Supreme People's Court on Issuing the Third Five-Year Reform Outline for the People's Courts (2009-2013) 

最高人民法院关于印发《人民法院第三个五年改革纲要(2009-2013)》的通知


(No. 14 [2009] of the Supreme People's Court)
 
(法发〔2009〕14号)


The higher people's courts of all provinces, autonomous regions and municipalities directly under the Central Government, the Military Court of the PLA, and the Xinjiang Production and Construction Corps Branch of the Higher People's Court of Xinjiang Uigur Autonomous Region,
 
各省、自治区、直辖市高级人民法院,解放军军事法院,新疆维吾尔自治区高级人民法院生产建设兵团分院:

The Third Five-Year Reform Outline for the People's Courts (2009-2013) has been approved by the Central Government, and is hereby issued to you. Please comply with and implement it in earnest and timely report to the Supreme People's Court any major event occurring during the implementation.
 
《人民法院第三个五年改革纲要(2009-2013)》已经中央批准,现印发给你们,请认真贯彻执行。贯彻执行中的重大事项,请及时报告我院。

March 17, 2009
 
二○○九年三月十七日

Third Five-Year Reform Outline for the People's Courts (2009-2013)
 
人民法院第三个五年改革纲要(2009-2013)

The Third Five-Years Reform Outline for the People's Courts (2009-2013) is formulated with a view to implementing the spirits of the Seventeenth National Congress of the CPC, complying with the overall requirements of the Central Government on deepening the reform of the judicial system and working mechanisms, maintaining social fairness and justice, satisfying the new demands and new expectations of the general public regarding the judicial work, and realizing the scientific development of the people's courts.
 
为贯彻党的十七大精神,落实中央关于深化司法体制和工作机制改革的总体要求,维护社会公平正义,满足人民群众对司法工作的新要求、新期待,实现人民法院科学发展,现制定《人民法院第三个五年改革纲要(2009-2013)》。

 
I. Guiding ideology, objectives and principles for deepening the judicial reform of the people's courts   一、深化人民法院司法改革的指导思想、目标和原则

 
1. Guiding ideology for deepening the reform of the judicial system and working mechanisms of the people's courts (一)深化人民法院司法体制和工作机制改革的指导思想

The guiding ideology for deepening the reform of the judicial system and working mechanisms of the people's courts is: to hold high the great banner of socialism with Chinese characteristics; take Deng Xiaoping Theory and the important thoughts of “Three Represents” as our guide; thoroughly apply the scientific view on development; fortify the notion of socialist rule of law; implement the work policies of being strict in the administration of the people's courts, ensuring public trust in the people's courts and building up the people's courts through science and technology; bear in mind that satisfying the judicial demands of the people is the start point, that safeguarding the people's interests is the fundamental purpose, that increasing social harmony is the primary task and that strengthening the power restraints and supervision as the focus; further solve the judicial problems which the people are most concerned about and expecting to be solved as well as the obstacles existing in the system, mechanism and safeguard which restrict the scientific development of the people's court, by starting with the practical issues which the people are dissatisfied with and closely surrounding the key factors which may affect and restrict the judicial impartiality, efficiency, capacity and authority; give full play to the advantages of the socialist judicial system with Chinese characteristics and provide a strong and reliable judicial safeguard and a harmonious and stable social environment for the smooth running of the socialist market economy and for the socialist cause with Chinese characteristics.
 
深化人民法院司法体制和工作机制改革的指导思想是:高举中国特色社会主义伟大旗帜,坚持以邓小平理论和“三个代表”重要思想为指导,深入贯彻落实科学发展观,牢固树立社会主义法治理念,贯彻从严治院、公信立院、科技强院的工作方针,从满足人民群众司法需求出发,以维护人民利益为根本,以促进社会和谐为主线,以加强权力制约和监督为重点,从人民群众不满意的实际问题入手,紧紧抓住影响和制约司法公正、司法效率、司法能力、司法权威的关键环节,进一步解决人民群众最关心、最期待改进的司法问题和制约人民法院科学发展的体制性、机制性、保障性障碍,充分发挥中国特色社会主义司法制度的优越性,为社会主义市场经济体制的顺利运行,为中国特色社会主义事业提供坚强可靠的司法保障和和谐稳定的社会环境。

 
2. Objectives of deepening the reform of the judicial system and working mechanisms of the people's courts (二)深化人民法院司法体制和工作机制改革的目标

The objectives of deepening the reform of the judicial system and working mechanisms of the people's courts are: to further optimize the allocation of functions of the people's courts, implement the criminal policy of stressing both leniency and severity, strengthen the team construction, enhance the budget guarantee system, improve the mechanism of judicial work for the people, make efforts to eliminate the contradiction between the increasing judicial demands of the people and the inadequate judicial capacity of the people's courts, boost the self-improvement and development of the socialist trial system with Chinese characteristics and establish an impartial, efficient and authoritative socialist judicial system.
 
深化人民法院司法体制和工作机制改革的目标是:进一步优化人民法院职权配置,落实宽严相济刑事政策,加强队伍建设,改革经费保障体制,健全司法为民工作机制,着力解决人民群众日益增长的司法需求与人民法院司法能力相对不足的矛盾,推进中国特色社会主义审判制度的自我完善和发展,建设公正高效权威的社会主义司法制度。

 
3. Principles for deepening the reform of the judicial system and working mechanisms of the people's courts (三)深化人民法院司法体制和工作机制改革的原则

The principles for deepening the reform of the judicial system and working mechanisms of the people's courts are: (1) To always adhere to the Party's leadership. The reform of the judicial system and working mechanisms is an integral part of the political system reform of China, and has strong political, policy and legal features. We must, under the uniform leadership of the Party, make decisions scientifically, democratically and according to law, and make progress actively, steadily, gradually, from top to bottom, according to an overall plan and step by step. We must firmly follow the orientation of the judicial reform so as to ensure the correct political direction of the judicial reform of the people's courts. (2) To always adhere to the direction of socialism with Chinese characteristics. The reform of the judicial system and working mechanisms must conform to the state system of the people's democratic dictatorship and to the political regime of the people's congresses. We must be guided by the Marxist legal thoughts and the notions of socialist rule of law, take the socialist road of political development and construction of rule of law with Chinese characteristics, meet the requirements for giving top priority to the cause of the Party, interests of the People and the Constitution, and ensure favorable conditions for the sound and rapid development of the economy and society, maintenance of the national security and social stability, self-improvement and development of the socialist judicial system, and strengthening and improvement of the Party's leadership over the work of the people's courts. (3) To always adhere to our national situation. We must, in the reform of the judicial system and working mechanisms, first take into consideration our basic national situation that our country is still and will remain at the primary stage of socialism for a long term and the characteristics of development at this stage. We shall carefully study, absorb and borrow the beneficial achievements of the mankind in the rule of law, but not simply copy the foreign judicial systems and regimes. We shall keep pace with the time, but not put forward requirements beyond the actualities at this stage. (4) To always adhere to the mass line. We must, in the reform of the judicial system and working mechanisms, fully heed the opinions of the people, fully reflect the wishes of the people, endeavor to solve the dissatisfactions of the people, consciously accept the supervision and test by the people, and make the reform in deed done for the people, depending on the people and beneficial to the people. (5) To always adhere to the overall planning and coordination. We must, in the reform of the judicial system and working mechanisms, first enhance the capacities of the people's courts to perform their functions vested by law, make overall planning and coordination on the relationships between the central and local authorities, between the present time and the future, between the courts at different levels and between the people's courts and other political and law departments, and ensure that all reform measures not only meet the requirements for our economic and social development, development of democratic politics and legal awareness of citizens but also the professional characteristics of the people's courts and the judicial police of the courts so as to actively boost the scientific development of the cause of the people's courts. (6) To always adhere to pushing forward the reform according to law. We must regard the Constitution and laws as the basis for all the measures for the reform of the judicial system and working mechanisms, consciously accept the supervision by the people's congresses, maintain the constitutional status and judicial authority of the people's courts, implement any measure which is contrary to a current law only after the relevant law or regulation has been amended so as to ensure all reform measures completely conform to the constitutional spirits and legal provisions. (7) To always adhere to the objective law of the judicial work. We must combine the reform of the judicial system and working mechanisms with the objective law peculiar to the trial and execution work, and stress the exploration of the concrete application and embodiment of the objective judicial law in the particular national situation and the particular environment. We shall insist on applying the scientific view of development to the overall judicial reform, establish a scientific trial system and an effective execution working mechanism which conform to the objective judicial law, improve the justice administration system, endeavor to raise the judicial capacities of the people's courts, and ensure that all the reform measures of the people's courts meet the requirements for our economic and social development and development of socialist democratic politics.
 
深化人民法院司法体制和工作机制改革的原则:一是始终坚持党的领导。司法体制和工作机制改革是我国政治体制改革的重要组成部分,具有很强的政治性、政策性、法律性,必须在党的统一领导下,科学决策、民主决策、依法决策,积极稳妥,循序渐进,自上而下,总体规划,分步推进;必须牢牢把握司法改革导向,确保人民法院司法改革的正确政治方向。二是始终坚持中国特色社会主义方向。司法体制和工作机制改革必须符合人民民主专政的国体和人民代表大会制度的政体,必须以马克思主义法制思想和社会主义法治理念为指导,必须走中国特色社会主义政治发展、法治建设道路,必须体现党的事业至上、人民利益至上、宪法法律至上的要求,确保有利于经济社会又好又快发展,有利于维护国家安全和社会稳定,有利于社会主义司法制度的自我完善和发展,有利于加强和改进党对人民法院工作的领导。三是始终坚持从我国国情出发。司法体制和工作机制改革必须立足于我国仍处于并长期处于社会主义初级阶段的基本国情和发展阶段性特征,既认真研究和吸收借鉴人类法治文明有益成果,又不照抄照搬外国的司法制度和司法体制;既与时俱进,又不超越现阶段实际提出过高要求。四是始终坚持群众路线。司法体制和工作机制改革必须充分听取人民群众的意见,充分体现人民群众的意愿,着眼于解决人民群众不满意的问题,自觉接受人民群众的监督和检验,真正做到改革为了人民、依靠人民、惠及人民。五是始终坚持统筹协调。司法体制和工作机制改革必须立足于提高人民法院履行法律赋予的职责使命的能力,统筹协调中央和地方、当前和长远的关系,统筹协调上下级法院之间、人民法院与其他政法部门之间的关系,确保各项改革措施既适应我国经济社会发展、民主政治建设、公民法律素养的要求,又适应人民法院和法院干警的职业特点,积极推进人民法院事业科学发展。六是始终坚持依法推进改革。司法体制和工作机制改革的各项措施要以宪法和法律为依据,自觉接受人大监督,维护人民法院的宪法地位和司法权威,凡与现行法律相冲突的,应在修改相关法律法规后实施,确保人民法院各项改革措施完全符合宪法精神和法律的规定。七是始终坚持遵循司法工作的客观规律。司法体制和工作机制改革必须结合审判和执行工作自身特有的规律,注重探索司法规律在特定国情、特定环境下的具体应用和体现。坚持以科学发展观统领司法改革全局,建立符合司法规律的科学的审判制度和有效的执行工作机制,完善司法管理体制,努力提高人民法院的司法能力,确保人民法院各项改革措施适应我国经济社会发展和社会主义民主政治建设的要求。

 
II. Main tasks of the judicial reform of the people's courts (2009-2013)   二、2009-2013年人民法院司法改革的主要任务

 
1. To optimize the allocation of functions of the people's courts (一)优化人民法院职权配置

 
(1) To reform and improve the operating mechanism for the judicial functions of the people's courts. We shall, by centering on the trial and execution work, optimize the allocation of functions among the trial departments, among the comprehensive administration departments, between the trial departments and the comprehensive administration departments, and between the courts at different levels so as to form a more reasonable function structure and organizational system. 1、改革和完善人民法院司法职权运行机制。以审判和执行工作为中心,优化审判业务部门之间、综合管理部门之间、审判业务部门与综合管理部门之间、上下级法院之间的职权配置,形成更加合理的职权结构和组织体系。

 
(2) To reform and improve the criminal trial system. We shall regulate the discretionary power, incorporate sentencing into the court trial procedures, study and issue the Guiding Opinions on Sentencing Procedures of the People's Courts. We shall improve the criminal procedures for the first and second instances, implement the relevant provisions on the roles of the procuratorial organs and lawyers in criminal trials, and strive to improve the quality and efficiency of trials. We shall establish rules on opening the trial procedures for commutation and parole cases, tighten the applicable conditions for commutation and parole of criminals with felonies, and strengthen the synchronous supervision. We shall assist the relevant departments to improve the legislation on the time limits for trying major, difficult and complicated cases; enhance the applicable conditions and adjudicating procedures for the medical parole, temporary serving of sentence outside a prison and change of place of serving a sentence; improve the system of civil lawsuits incidental to criminal cases, regulate the working mechanisms for the execution of judgments of property-related penalties and civil lawsuits incidental to criminal cases, reinforce mediation in lawsuits, and promote the execution of judgments; improve the criminal evidence system, formulate rules on the examination of criminal evidence, unify the criterions on admissibility of evidence; establish and enhance the systems for witnesses and experts to take the stand and for the protection of them, and clarify the extent and procedures for criminal investigators to take the stand. 2、改革和完善刑事审判制度。规范自由裁量权,将量刑纳入法庭审理程序,研究制定《人民法院量刑程序指导意见》。完善刑事诉讼第一审程序和第二审程序,落实检察机关和律师在刑事审判中的职能作用的有关规定,切实提高审判质量和效率。建立减刑、假释审理程序的公开制度,严格重大刑事罪犯减刑、假释的适用条件,加强同步监督。配合有关部门促进重大、疑难、复杂案件的审理期限的立法完善;完善保外就医、暂予监外执行、服刑地变更的适用条件和裁定程序;完善刑事附带民事审判制度,规范财产刑和刑事附带民事诉讼裁判的执行工作机制,强化诉讼调解,促进裁判执行;完善刑事证据制度,制定刑事证据审查规则,统一证据采信标准;建立健全证人、鉴定人出庭制度和保护制度,明确侦查人员出庭作证的范围和程序。

 
(3) To reform and improve the civil and administrative trial systems. We shall further improve the evidence rules for civil procedures, clarify the concrete conditions for the military courts to accept civil cases within the army, establish a sound trial system and sound working mechanisms compatible with the features of intellectual property cases, and explore the formation of consolidated trial court which exclusively accepts intellectual property cases in municipalities directly under the Central Government and in large and medium cities with more intellectual property cases. We shall give an impetus to the process of amending the administrative litigation law and push forward the reform and improvement of the trial and jurisdictional systems for administrative lawsuits. We shall improve the summary procedures for civil and administrative lawsuits, clarify the scope of cases subject to the summary procedure and formulate rules on trials under the summary procedure. We shall establish a trial information communication and coordination mechanism for new-type, complicated, mass and sensitive civil cases so as to ensure the uniformity of judgment standards. 3、改革和完善民事、行政审判制度。进一步完善民事诉讼证据规则。明确军事法院受理军内民事案件的具体条件。建立健全符合知识产权案件特点的审判体制和工作机制,在直辖市和知识产权案件较多的大中城市,探索设置统一受理知识产权案件的综合审判庭。推进行政诉讼法的修改进程,促进行政诉讼审判体制和管辖制度的改革和完善。完善民事、行政诉讼简易程序,明确适用简易程序的案件范围,制定简易程序审理规则。建立新型、疑难、群体性、敏感性民事案件审判信息沟通协调机制,保证裁判标准统一。

 
(4) To reform and improve the retrial system. We shall improve the supervision procedures for criminal trials, regulate the trial procedures for criminal cases appealed by the procuratorates under the supervision procedures for criminal trials, improve the functional division and work procedures for the filing and retrial of criminal petition cases. We shall improve the retrial procedures for civil cases, protect the right of a party concerned to apply for retrial, and correctly deal with the relationship between correcting mistakes according to law and maintaining the force of the effective judicial judgments so as to actually solve the people's difficulties in making petitions and retrial applications. 4、改革和完善再审制度。完善刑事审判监督程序,规范按照审判监督程序提出的刑事抗诉案件的审判程序,完善刑事申诉案件立案与再审的职能分工和工作流程。完善民事再审程序,依法保护当事人的申请再审权,正确处理依法纠错与维护司法既判力的关系,切实解决人民群众申诉难和申请再审难问题。

 
(5) To reform and improve the trial organizations. We shall improve the scope of and procedure for cases subject to discussion of the judicial committee, and regulate the functions and administrative work of the judicial committee. We shall implement the provision on procurator-general and deputy procurator-general authorized by the procurator-general of the people's procuratorate sitting as observers of the judicial committee of the people's court at the same level. We shall improve the system of collegiate bench and fortify the functions of the collegiate bench and presiding judges. We shall further improve the system of the people's jurors, expand the scope of selection and the scope of participation in trial activities of the people's jurors, regulate their participation in the trial of cases, improve relevant administrative rules and implement the safeguard measures.
......
 5、改革和完善审判组织。完善审判委员会讨论案件的范围和程序,规范审判委员会的职责和管理工作。落实人民检察院检察长、受检察长委托的副检察长列席同级人民法院审判委员会的规定。完善合议庭制度,加强合议庭和主审法官的职责。进一步完善人民陪审员制度,扩大人民陪审员的选任范围和参与审判活动的范围,规范人民陪审员参与审理案件的活动,健全相关管理制度,落实保障措施。
......

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