司法“去地方化”改革反思

Reflections on the Judicial“De-localization”Reform

基于“司法权是中央事权”这一论断,2013年以来的司法改革力图通过司法权的中央化来祛除司法的地方保护主义。在中央确定的两项主要改革举措中,推进省以下地方法院、检察院人财物省级统管,因受地方各级人大产生同级法院、检察院的宪制约束,以及各地方财政资源不平衡现实的影响,只能实行“有限统管”;设立跨行政区划法院、检察院,因存在宪制空间上的争议无法形成统一的认识,一直停留在试点阶段而踟蹰不前,改革路径也在司法机构创制和管辖制度调整之间来回切换。实际上,地方法院、检察院不仅具有“国家性”,而且“地方性”也是其内在基因,司法地方保护主义的产生,并非根源于法院、检察院的地方性,而在于法院、检察院行使司法权时被属地体制性地行政化。只有按照法治的要求和司法的规律,合理确定司法权在地方权力结构中的地位,法院、检察院依法独立公正行使职权,才具有可依赖的前提和基础。

Based on the assertion that"judicial power belongs to the central authority",judicial reforms since 2013 in China have aimed at eliminating judicial local protectionism through the centralization of judicial power.Of the two main reform measures adopted by the Central Government,the measure for the unified management at the provincial level of personnel,funding and properties in local courts and procuratorates below the provincial level has been implemented only to a limited extent due to the constitutional constraint that local courts and procuratorates at various levels are set up by local people's congresses at corresponding levels and the uneven distribution of financial resources among various regions,while the measure for establishing cross-administrative-district courts and procuratorates remains at the pilot stage due to disputes over constitutional space and the reform path has also shifted back and forth between the creation of judicial institutions and the adjustment of jurisdictional systems.In fact,local courts and procuratorates have not only a"state"attribute but also an inherent"local"gene.Judicial local protectionism stems not from the local attribute of courts and procuratorates,but from their systemically administerization by local in the exercise of judicial power.Only by determining reasonably the position of judicial power in the local power structure in accordance with the requirements of the rule of law and the laws of justice,can a reliable premise and foundation be provided for the independent and impartial exercise of powers by local courts and procuratorates in accordance with the law.