中国司法治理下涉诉信访基本理论与实践出路

Basic Theory and Practical Solution for Litigation-related Petition under China's Judicial Governance

司法治理是各国国家治理体系的重要组成部分,而其中的涉诉信访治理则是典型的“中国问题”,它反映的是经济、政治、文化、社会、法治等综合矛盾,也说明现有诉讼制度不足以适应现实诉讼的需要而与社会生活失调。涉诉信访具有矛盾的对抗性、复杂的程序性、较强的个案性、终局的相对性、制度的有限性等特征。涉诉信访的成因十分复杂,有人民法院、当事人、法律制度、传统文化、经济社会发展等原因。涉诉信访治理应当立足国情,坚持系统思维,研究和把握其规律性,推动深层次战略实施和相关领域体制完善,进一步深化诉访分离、律师代理、终结移交等制度改革,调整基层人民法庭职能定位,将其改造为“准司法”机构,并根据信访法治化的要求,推进“诉访分离”走向更高层次的“访诉融合”。总之,我国应按照全面依法治国和国家治理体系治理能力现代化的战略部署,不断深化司法治理理论研究与实践,走出一条中国特色社会主义涉诉信访治理之路。

Judicial governance plays an important role in the national governance system among all countries. And the governance of litigation-related petitions in it is a typical “Chinese problem”, which reflects the comprehensive contradictions about economics, politics, culture, society and the rule of law, and demonstrates the dissonance between the existing litigation system and the society because of the disability of the former to adapt to needs of real litigations. The litigation-related petition in China has several characteristics, such as opposite positions of both parties, the complexity of the procedure, varied circumstances in individual cases, the relative understanding of the finality concept, the insufficiency of existing rules and so on. The causes of litigation-related petitions are various, which are to be attributed to the people's courts, the parties involved, the legal system, the traditional culture, the economic and social development and so on. The governance of litigation-related petitions should be based on the Chinese context, insist on the systematic thinking, and rely on the research of litigation-related petitions, while it is important to promote the implementation of in-depth strategies and institutional improvements in related areas. Concretely speaking, the reform of the separation of petitions and litigations, the procedural representation by lawyers, and the system of case closing and transferring should be deepened. It also requires to transform the functional positioning of the basic people's courts into “quasi-judicial” bodies, and while legalizing the petition system, to upgrade the “separation of petitions and litigations” to a higher state, namely the “integration of petitions and litigations”. In conclusion, following the strategic plan for comprehensive law-based governance and modernization of governance system and capacity, China should continue the theoretical research and practice of judicial governance, and find a new socialism road of governance of the litigation-related petition with China's characteristics.