Second Five-Year Reform Program for the People's Courts (2004-2008) (CECC Partial Translation)


Issuer: 
Supreme People's Court

中文版


The following is a partial translation prepared by the Congressional-Executive Commission on China of the "Second Five Year Reform Program for the People's Courts (2004-2008)" issued by the Supreme People's Court on October 26, 2005. The Chinese text was retrieved from the Law-Lib.com Web site on January 26, 2006. An analysis of the reform program is available here.


I)    Reforming and Perfecting Litigation Procedure Systems

1)    Reforming and perfecting adjudication procedures for death penalty cases. For those cases in which people's courts may impose the death penalty in accordance with first instance procedures for adjudication, witnesses and forensic experts shall appear in court, except those cases where the defendant has confessed or where the prosecution and defense do not dispute the evidence. After 2006, death penalty cases which people's courts are handling in accordance with second instance procedures for adjudication shall all be handled in court, and relevant witnesses and forensic authenticators should appear in court.

2)    Reforming and perfecting procedures for the review of death penalty decisions. Implementing the relevant laws and central government decisions related to reform of the judicial system, with the Supreme People's Court (SPC) consolidating its exercise of the authority to review death penalty decisions and issuing judicial interpretations regarding procedures for review of death penalty decisions.

3)    Reforming the system of criminal evidence. Issuing criminal evidence rules. Rejecting, in accordance with law, the use of oral evidence obtained through torture or other illegal means. Reinforcing the appearance of witnesses and forensic authenticators in court. Taking further steps to implement principles related to human rights and the presumption of innocence. Making timely legislative proposals on the subject of criminal evidence.

4)    Reforming jurisdiction for civil cases.  Changing the standards by which jurisdiction is assigned simply based on the size of the monetary compensation requested by the plaintiff.  Reforming the jurisdiction of civil cases that cross administrative boundaries. Constructing a system of trial jurisdiction (yi shen) that merges both the amount of monetary compensation and the locales of the parties.  Strengthening the system of increasingly higher jurisdiction, issuing regulations regarding how to use jurisdiction.  Progressively working to ensure that high people's courts (HPCs) do not handle cases of first instance (yi shen) that do not involve questions of common application of law.

5)    Reforming and perfecting the jurisdiction of administrative cases. Institutionally eliminating factors that interfere with administrative trials.  Reforming and perfecting administrative litigation procedure, accumulating experience for the amendment of the Administrative Litigation Law, and making appropriate legislative proposals.

6)    Continuing to explore simplified litigation procedures for civil cases. Constructing an expedited case decision procedure on the basis of simplified civil procedures, and regularizing institutions, operational procedures, trial procedures, and forms, etc for the handling of small debt claims.

7)    Strengthening the case mediation system.  Devoting attention to guiding the work of people's mediators, supporting and supervising arbitration activities. Exploring new dispute-resolution systems in conjunction with other bureaus, promoting and constructing a comprehensive and diverse set of dispute resolution mechanisms.

8)    Reforming and perfecting pre-trial procedures.  Clarifying the different functions of trial and pre-trial procedures.  Regularizing procedures for decisions, pre-trial mediation, pre-trial conference, discovery, technical evaluation of evidence, and other activities.  Clarifying the distribution of responsibilities among relevant organs and people in the handling of pre-trial matters.

9)    Reforming the supervision system for civil and administrative cases, protecting legal rights, and upholding the authority of judicial decisions.  Exploring the construction of a system of suits for judicial retrials (zaishen).  Clarifying the criteria, limits, jurisdiction, and procedures, for retrial applications, institutionally protecting the ability of parties to equally exercise their litigation rights.

10)    Taking steps to implement the principle of open trials.  Adopting new measures of judicial openness, defining the extent and method of openness in the case transfer process.  Providing channels for society to comprehensively understand the court capabilities and activities, increasing the transparency of court trials, execution of judgments, and other court work.

II)    Reforming and Perfecting the System of Trial Guidance and the Mechanisms for the Uniform Use of Law

11)    Carrying out appropriate principles related to crime and punishment. Establishing guidelines for the appropriate use of the death penalty in homicide, robbery, intentional injury, and drug crimes, among others. Ensuring proper use of the death penalty. Researching the establishment of criminal sentencing guidelines for other crimes, and strengthening and perfecting relatively independent criminal sentencing procedures.

12)    Reforming the practice of lower courts seeking advisory opinions (qingshi) from higher courts in difficult cases of application of law.  In cases involving a common question of the applicability of law, lower courts may request that higher courts handle them, pursuant to the request of the parties or in accordance with the court's official powers.  If after examination, a higher court determines that a case meets set criteria, it may directly hear the case.

13)    Constructing and perfecting the case guidance system. Focusing attention on the use of guiding cases to unify legal applicable standards, to guide the work of lower courts, to enrich and develop legal theory, and other uses.  The SPC will issue regulations related to the case guidance system, to regulate the designation of standards and procedures for selecting guiding cases, methods for issuing them, and guidance rules.

14)    Reforming and perfecting the procedure for the SPC to issue judicial interpretations, taking steps to improve the quality of judicial interpretations.  The SPC will exercise uniform responsibility for organizing and coordinating activities including listing, drafting, approving, and issuing judicial interpretations.  The SPC will regularly clean up, amend, abolish, and compile judicial interpretations.  The SPC will regularize the system of filing judicial interpretations with the NPC Standing Committee.

15)    Constructing a coordination mechanism for sharing legal views and understanding between courts, between the trial organs within a court, and between different trial organizations, to unify judicial standards and measures.  Take steps to create and strengthen other effective methods to ensure the unified, just, fair application of law by courts.

III)    Reforming and Perfecting Work Systems and Methods to Enforce Judgments  

16)    Taking steps to reform and perfect systems for the enforcement (zhixing) of court judgments.  The SPC's enforcement organs supervise and guide the enforcement work of China's courts.  The enforcement organs of provincial, autonomous region, and directly administered municipality high people's courts will uniformly manage and coordinate enforcement work in their jurisdictions.

17)    Deepen reforms to the exercise of power for organs that carry out the enforcement of judgments.  Court enforcement organs at all levels will be responsible for executing civil and administrative judicial opinions, decisions, and other legal bases, as well as enforcing those portions of criminal decisions related to property (including property crimes).  With regard to the substantive disputes in the process of enforcing decisions that require hearings to decide, these should be heard by trial organs outside of the enforcement organ.  If necessary, specialized trial organs can be established.  Constructing emergency measures for relief by parties in enforcement cases and third parties, such as requesting review of decisions by the enforcement organ with regard to important procedural questions.

18)    Reforming and perfecting the procedure for enforcement of judgments, strengthening the system for enforcing judicial interpretations.  Actively pushing forward legislation on the enforcement of decisions, regularizing the behavior of every enforcement authority.

19)    Constructing a national information network on the enforcement of court judgments, participating in the construction of the credit system. Constructing mechanisms for supervising the enforcement of court judgments.  Pressing individuals who are subject to judgments to carry out their responsibilities.

20)    Reforming and perfecting jurisdiction to improve efficiency in the enforcement of judgments, reduce the cost of execution, eliminate interference, and ensure that the legal rights of parties are protected in a timely manner.

21)    Exploring new methods in enforcement.  Cooperating with relevant bureaus against individuals who fail to carry out their responsibilities under enforcement orders to take measures such as reporting on their property, compulsory audits, imposing limits on their ability to leave the country, and releasing lists of people subject to enforcement orders.

22)    Reforming and perfecting systems and procedures for trials for refusing to carry out court decisions, and increasing judicial penalties for failure to carry out valid decisions or obstructing their execution.

IV)     Reforming and Perfecting Trial Organs

23)    Reforming the system of court adjudication committees. The SPC will establish specialized criminal and civil/administrative committees.  HPCs and IPCs can establish criminal committees and civil/administrative committees according to need.  Reforming the composition of court adjudication committees, assuring that experienced, qualified judges can enter the adjudication committees.  Reforming the process and methods by which adjudication committees hear cases, changing from a system of meetings to one of hearings.  Reforming the voting mechanisms of adjudication committees, perfecting the work system of adjudication committees.

24)    Members of court adjudication committees can themselves organize or form panels to hear important, difficult, or complex cases, or those involving common questions of the applicability of law.

25)    Taking steps to strengthen the responsibility of court presidents, vice presidents, and heads of tribunals for trials. Clarifying their supervisory responsibilities for trials and their supervisory responsibilities for political affairs. Exploring the construction of new management systems, achieving centralization and specialization of the political affairs supervision within the judiciary.

26)    Constructing responsibility systems for judges to independently decide cases.  Strengthening trial responsibility for individual judges and judicial panels.  Court presidents, vice presidents, and heads of tribunals should participate in the hearing of cases.  Gradually implement responsibility systems for judicial panels and individual judges.

27)    Fully carrying out the NPC Standing Committee's "Decision on Perfecting the System of People's Assessors."  Perfecting the management system for people's assessors.  Formulating judicial interpretations to protect the ability of people's assessors to fairly exercise their power to try cases.  Fully bringing to play the functions of the people's assessors system.

28)    Reforming and perfecting the work mechanisms of people's tribunals.  Bringing into play systems for people’s tribunals to directly handle cases, engage in mediation, use simplified trial procedures, and enforce simple cases.  Deepening links between people's tribunals and society, strengthening the management of people's tribunals and guarantees for their physical and financial needs, improving the judicial expertise of people's tribunals.

V)    Reforming and Perfecting Judicial Systems for the Management of Trials and the Management of Political Affairs

29)    Strengthening trial management systems. Clarifying trial management responsibility. Developing management plans for trials of cases and the exercise of trial authority over related matters.  Improving management methods, constructing mechanisms to coordinate between trials, trial management, the management of political and judicial affairs, and judicial personnel management, and raising the quality and efficiency of trial work.

30)    Improving scientific processes of managing trials. Gradually working toward a model of courts at the same level implementing a unified case workflow process.  Perfecting a system of random case division, taking into consideration types of cases, their difficulty, and other factors.

31)    Implementing the Standing Committee of the National People's Congress' "Decision Regarding the Managing Expert Determination of Fact," reforming and perfecting the technical management work of the people's courts.  The Supreme People's Court, high people's courts, and intermediate people's courts may, according to law and need, bring into play their judicial auxiliary function by equipping themselves with legal medical experts and other judicial technical personnel.

32)    Reforming the system of judicial statistics, constructing a system of judicial statistical targets that can objectively and accurately reflect the judicial work circumstances of each level of the people's courts and can serve judicial management needs.  Expanding the extent of publicly available data, strengthening the analysis and use of statistical information.

33)    Reforming the methods of documenting trial proceedings. Strengthening the use of information technology in court documentation. Bringing into full play the function of trial documentation in the litigation process and management work.  Courts where conditions permit may utilize sound recordings, video recordings, or other technology to document trial proceedings.

VI)    Reforming and Perfecting the System of Judicial Personnel Management

34)    Promoting the separate management for different types of judicial personnel. Formulating management systems for judges, judicial clerks, secretaries, enforcement personnel, judicial police, judicial administrative personnel, judicial technical personnel, and others.  Strengthening the professionalization of judges and other personnel.  Constructing judicial job responsibilities in accordance with trial work and the nature of judicial work.  Using prior experience to steadily construct a system of judicial clerks.

35)    Carrying out the requirements of the Law on Judges, negotiating with relevant bureaus, promoting the construction of an employment system for judges.  Appropriately extending the retirement age for more experienced judges, while assuring the overall quality of judicial personnel.

36)    Studying the establishment of quotas for the numbers of judges in all courts, based on the level of the court, their jurisdictional area, the numbers of cases, and other factors.

37)     Reforming judicial selection procedures.  Constructing a selection mechanism that conforms to the nature of the judicial profession.  Exploring, within a given area, the implementation of a system to centrally recruit and assign judges to hold positions in basic people's courts.  Gradually implement the system of primarily selecting outstanding judges from lower people's courts and other outstanding legal personnel to serve as judges in higher people's courts.

38)     Strengthening exchanges between courts in different regions and between higher and lower people's courts, promoting systems of judicial exchange and rotating employment between similar departments within the people's courts.

39)     Constructing training systems for judges before they begin working and reforming the training system for judges currently serving.  New judges must take part in a state judicial institute or other commissioned training organization for professional training before they begin working.  Reforming the content, method, and management of judicial training, studying the development of training courses and curriculum suitable for the nature of judicial work, and reforming the method of selecting trainers for judicial training institutes.

40)     Implementing the Law on Judges, promoting appointments, promotions, rewards, welfare, and medical insurance suitable for judicial work, and improving the system of wages, benefits, and subsidies.  Gradually raise judicial compensation, after determining the quotas for judicial personnel.

VII) Reforming and Perfecting Systems of Internal and External Supervision for the People's Courts

41)     Establishing scientific and unified systems for evaluating trial quality and effectiveness.  Establishing scientific standards to evaluate judges and perfecting evaluation mechanisms, while protecting the ability of judges to try cases independently according to the law.

42)     Reforming evaluation systems for judges and other personnel in the people's courts, bringing into play the role of the committee for the examination and appraisal of judges.  Designing a scientific assessment method, perfecting assessment processes, unifying standards and procedures for the assessment of judicial achievements, all according to the characteristics of the judicial profession and the concrete needs of different posts.  Establishing an evaluation mechanism for other judicial personnel.

43)     Strengthen judicial disciplinary systems to conform to the characteristics of the judicial profession, establishing judicial disciplinary rules, standardize conditions for penalizing judges, procedures for trying cases, and the channels of relief.  Ensuring the legitimate rights of judges who are the subject of complaints or investigations by judges.

44)     Perfecting methods and procedures by which the people's courts consciously receive supervision from authorized organs. Strengthening the system of accepting criticism and recommendations of the people's congresses and the people's political consultative conferences. Perfecting systems such as that of attendance by members of the people's congresses and the people's political consultative conferences at court trials, and communication systems between the people's courts congresses, and political consultative conferences.

45)     Implementing systems by which the head procurator of the people's procuratorate or assistant procurators designated by him may participate in judicial adjudication committees in courts of the same rank.

46)     Standardizing relations between people's courts and the media, establishing new mechanisms that can both allow society to comprehensively understand the work of the courts and effectively protect the ability of the people's courts to try cases independently according to the law.  The people's courts shall perfect the system of news spokespersons, reporting in a timely manner on the people's courts' adjudication work and other work to society and the media, consciously accepting the people's mass supervision.

VIII)     Continuing Reform to the Court System

47)     Continuing to explore reform of court organization, management of human, financial, and material resources, in order to provide organizational and material safeguards for the independent exercise of judicial authority.

48)     Reforming and perfecting the system of guaranteed court finances. Exploring the establishment of providing for court work expenses through guaranteed national financing, and including courts within national and provincial financial systems. Studying the establishment of a guaranteed standard for the basic finances of basic people's courts.

49)     Coordinating with relevant authorities to reform court personnel, finances, and material resources currently managed by railway, forestry, oil, wasteland reclamation, mining departments, and enterprises.

50)     Perfecting the juvenile criminal system, civil cases involving the protection of the rights of minors, and administrative cases.  Launching experimental youth courts in large cities possessing the right conditions.  Adapting judicial work to the particular needs of minors, promoting the establishment of a juvenile judicial system for youth with Chinese characteristics.


人民法院第二个五年改革纲要(2004-2008)

人民法院第二个五年改革纲要(2004-2008)

最高人民法院
法发[2005]18号

1999年,最高人民法院根据党的十五大关于推进司法改革的要求,制定并发布了《人民法院五年改革纲要》,对1999-2003年全国法院的司法改 革作了统一部署。5年多来,全国各级人民法院以公正与效率为主题,以改革为动力,认真贯彻落实《人民法院五年改革纲要》,基本完成了各项改革任务,初步建 立了适合我国国情的审判方式,为司法公正提供了一定制度保障;基本理顺了我国的审判机构,完善了刑事、民事、行政三大审判体系,使法院组织制度更加合理 化;扩大了合议庭和独任法官的审判权限,为实现审与判的有机统一打下了基础;实施了法院执行工作新机制,在一定程度上缓解了执行难问题,并为深化体制改革 进行了有益的探索;确立了法官职业化建设的目标,合理配置司法人力资源,使人民法院的整体司法能力明显提高;加速了司法装备现代化建设,全国大部分法院的 基本建设和物质保障有了较大改善。
2002年,党的十六大提出了积极、稳妥地推进司法体制改革的要求,特别是2004年底,党中央对今后一段时期的司法体制和工作机制改革作了全面部署。目 前,相对滞后的司法体制和工作机制已经不能适应人民群众对司法公平正义日益增长的需求,人民法院的司法改革既面临着不可多得的历史机遇,又面临着多方面的 严峻挑战,而这些挑战为司法体制改革提出了更高的要求。为了贯彻落实党中央部署的司法体制和工作机制改革任务,进一步深化人民法院各项改革,完善人民法院 的组织制度和运行机制,增强司法能力,提高司法水平,保障在全社会实现公平和正义,现制定《人民法院第二个五年改革纲要(2004-2008)》。
2004年至2008年人民法院司法改革的基本任务和目标是:改革和完善诉讼程序制度,实现司法公正,提高司法效率,维护司法权威;改革和完善执行体制和 工作机制,健全执行机构,完善执行程序,优化执行环境,进一步解决“执行难”;改革和完善审判组织和审判机构,实现审与判的有机统一;改革和完善司法审判 管理和司法政务管理制度,为人民法院履行审判职责提供充分支持和服务;改革和完善司法人事管理制度,加强法官职业保障,推进法官职业化建设进程;改革和加 强人民法院内部监督和接受外部监督的各项制度,完善对审判权、执行权、管理权运行的监督机制,保持司法廉洁;不断推进人民法院体制和工作机制改革,建立符 合社会主义法治国家要求的现代司法制度。
推进人民法院司法改革,必须坚持以下基本原则:坚持党的领导,全面贯彻党的路线、方针、政策,从有利于巩固党的执政地位,提高党的执政能力的高度把握法院 司法改革的政治方向;坚持人民代表大会制度,自觉接受人民代表大会及其常务委员会的监督,保持我国司法制度的社会主义民主特征;坚持以宪法和法律为依据, 维护法制统一,保障人民法院依法独立行使审判权,维护司法权威;坚持公正司法、一心为民的指导方针,实现司法公正,方便群众诉讼,尊重和保障人权;坚持科 学发展观,遵循司法客观规律,体现审判工作的公开性、独立性、中立性、程序性、终局性等本质特征;坚持从中国的国情出发,借鉴国外司法改革的有益成果。
2004年至2008年人民法院司法改革的主要内容是:

一、改革和完善诉讼程序制度

1、改革和完善死刑案件的审判程序。人民法院依照第一审程序审理可能判处死刑的案件,除了被告人认罪或者控辩双方对证据没有争议的外,证人和鉴定人应当出庭。2006年以后,人民法院依照第二审程序审理的死刑案件,均应当开庭审理,相关证人和鉴定人应当出庭。

2、改革和完善死刑复核程序。落实有关法律的规定和中央关于司法体制改革的部署,由最高人民法院统一行使死刑核准权,并制定死刑复核程序的司法解释。

3、改革刑事证据制度,制定刑事证据规则,依法排除用刑讯逼供等非法方法获得的言辞证据,强化证人、鉴定人出庭,进一步落实保障人权和无罪推定原则,并适时提出刑事证据方面的立法建议。

4、改革民事案件管辖制度。改变单纯以诉讼标的金额确定级别管辖的标准,改革跨地区民事案件的管辖方式,建立诉讼标的金额与当事人所属地区相结合的一审案件管辖制度,加强提级管辖、指定管辖等规定的适用。逐步做到高级人民法院不审理不具有普遍法律适用意义的第一审案件。

5、改革和完善行政案件管辖制度,从制度上排除干预行政审判的各种因素。改革和完善行政诉讼程序,为行政诉讼法的修改积累经验,并适时提出立法建议。

6、继续探索民事诉讼程序的简化形式,在民事简易程序的基础上建立速裁程序制度,规范审理小额债务案件的组织机构、运行程序、审判方式、裁判文书样式等。

7、加强和完善诉讼调解制度,重视对人民调解的指导工作,依法支持和监督仲裁活动。与其他部门和组织共同探索新的纠纷解决方法,促进建立健全多元化的纠纷解决机制。

8、改革和完善庭前程序。明确庭前程序与庭审程序的不同功能,规范程序事项裁决、庭前调解、审前会议、证据交换、证据的技术审核等活动,明确办理庭前程序事务的职能机构和人员分工。

9、改革民事、行政案件审判监督制度,保护当事人合法权利,维护司法既判力。探索建立再审之诉制度,明确申请再审的条件和期限、案件管辖、再审程序等事项,从制度上保证当事人能够平等行使诉讼权利。

10、进一步落实依法公开审判原则,采取司法公开的新措施,确定案件运转过程中相关环节的公开范围和方式,为社会全面了解法院的职能、活动提供各种渠道,提高人民法院审判工作、执行工作和其他工作的透明度。

二、改革和完善审判指导制度与法律统一适用机制

11、贯彻罪刑相适应原则,制定故意杀人、抢劫、故意伤害、毒品等犯罪适用死刑的指导意见,确保死刑正确适用。研究制定关于其他犯罪的量刑指导意见,并健全和完善相对独立的量刑程序。

12、改革下级人民法院就法律适用疑难问题向上级人民法院请示的做法。对于具有普遍法律适用意义的案件,下级人民法院可以根据当事人的申请或者依职权报请上级人民法院审理。上级人民法院经审查认为符合条件的,可以直接审理。

13、建立和完善案例指导制度,重视指导性案例在统一法律适用标准、指导下级法院审判工作、丰富和发展法学理论等方面的作用。最高人民法院制定关于案例指导制度的规范性文件,规定指导性案例的编选标准、编选程序、发布方式、指导规则等。

14、改革和完善最高人民法院制定司法解释的程序,进一步提高司法解释的质量。最高人民法院对司法解释的立项、起草、审查、协调、公布、备案等事项实行统 一组织、统一协调,并定期对司法解释进行清理、修改、废止和编纂。规范最高人民法院将司法解释报送全国人民代表大会常务委员会备案的制度。

15、建立法院之间、法院内部审判机构之间和审判组织之间法律观点和认识的协调机制,统一司法尺度。进一步建立健全确保人民法院统一、平等、公正适用法律的其他有效方式。

三、改革和完善执行体制与工作机制

16、进一步改革和完善人民法院执行体制。最高人民法院执行机构监督和指导全国法院的执行工作。省、自治区、直辖市高级人民法院执行机构统一管理、统一协调本地区的执行工作。

17、深化执行权运行机制改革。各级人民法院执行机构负责民事、行政案件判决裁定和其他法定执行依据的执行事项,以及刑事案件判决裁定中关于财产部分的执 行事项(含财产刑)。对执行过程中需要通过审理程序解决的实体争议事项,应当由执行机构以外的审判组织审理,必要时可以设立专门的审判机构。建立执行案件 当事人和案外人对于执行机构就重要程序事项所作决定申请复议等救济途径。

18、改革和完善执行程序,加强执行司法解释工作,积极推进强制执行立法进程,规范各类执行主体的行为。

19、建立全国法院执行案件信息管理系统,参与社会信用体系建设,建立执行督促机制,促使被执行人自动履行义务。通过公开执行信息,加强对执行工作的管理与监督,确保执行公正。

20、改革和完善执行管辖制度,以提高执行效率,节约执行成本,排除各种干扰,确保胜诉的当事人的合法权益及时得以实现。

21、探索执行工作新方法。与有关部门配合,对不履行执行依据所确定的义务的被执行人实行财产申报、强制审计、限制出境、公布被执行人名单等措施。

22、改革和完善审理拒不执行人民法院判决、裁定刑事案件的程序制度,并加大对不履行生效裁判、妨碍执行行为的司法制裁力度。

四、改革和完善审判组织与审判机构

23、改革人民法院审判委员会制度。最高人民法院审判委员会设刑事专业委员会和民事行政专业委员会;高级人民法院、中级人民法院可以根据需要在审判 委员会中设刑事专业委员会和民事行政专业委员会。改革审判委员会的成员结构,确保高水平的资深法官能够进入审判委员会。改革审判委员会审理案件的程序和方 式,将审判委员会的活动由会议制改为审理制;改革审判委员会的表决机制;健全审判委员会的办事机构。

24、审判委员会委员可以自行组成或者与其他法官组成合议庭,审理重大、疑难、复杂或者具有普遍法律适用意义的案件。

25、进一步强化院长、副院长、庭长、副庭长的审判职责,明确其审判管理职责和政务管理职责,探索建立新型管理模式,实现司法政务管理的集中化和专门化。

26、建立法官依法独立判案责任制,强化合议庭和独任法官的审判职责。院长、副院长、庭长、副庭长应当参加合议庭审理案件。逐步实现合议庭、独任法官负责制。

27、全面贯彻全国人民代表大会常务委员会《关于完善人民陪审员制度的决定》,健全人民陪审员管理制度,制定关于保障人民陪审员公正行使审判权的司法解释,充分发挥人民陪审员制度的功能。

28、改革和完善人民法庭工作机制,落实人民法庭直接受理案件、进行诉讼调解、适用简易程序、执行简单案件等方面的制度,密切人民法庭与社会的联系,加强人民法庭的管理和物质保障,提高人民法庭的司法水平。

五、改革和完善司法审判管理与司法政务管理制度

29、建立健全审判管理组织制度,明确审判管理职责,建立并细化与案件审理、审判权行使直接相关事项的管理办法,改善管理方式,建立案件审判、审判管理、司法政务管理、司法人事管理之间的协调机制,提高审判工作的质量与效率。

30、健全和完善科学的审判流程管理制度,逐步做到同一级别的法院实行统一的审判流程管理模式。在考虑案件类型、难易程度等因素的前提下建立和完善随机分案制度。

31、贯彻落实全国人民代表大会常务委员会《关于司法鉴定管理问题的决定》,改革和完善人民法院的司法技术管理工作。最高人民法院、高级人民法院和中级人民法院可以根据法律规定和实际需要配备法医等司法技术人员,发挥其司法辅助功能。

32、改革司法统计制度,建立能够客观、真实反映各级人民法院审判工作情况并适应司法管理需要的司法统计指标体系。扩大公开数据的范围,加强统计信息的分析和利用。

33、改革庭审活动记录方式,加强信息技术在法庭记录中的应用,充分发挥庭审记录在诉讼活动和管理工作过程中的作用。有条件的法院可以使用录音、录像或者其他技术手段记录法庭活动。

六、改革和完善司法人事管理制度

34、推进人民法院工作人员的分类管理,制定法官、法官助理、书记员、执行员、司法警察、司法行政人员、司法技术人员等分类管理办法,加强法官队伍 职业化建设和其他各类人员的专业化建设。建立符合审判工作规律和法官职业特点的法官职务序列。在总结试点经验的基础上,逐步建立法官助理制度。

35、落实法官法的规定,与有关部门协商,推动建立适合法官职业特点的任职制度。在保证法官素质的前提下,适当延长专业水平较高的资深法官的退休年龄。

36、根据人民法院的管辖级别、管辖地域、案件数量、保障条件等因素,研究制定各级人民法院的法官员额比例方案,并逐步落实。

37、改革法官遴选程序,建立符合法官职业特点的选任机制。探索在一定地域范围内实行法官统一招录并统一分配到基层人民法院任职的制度。逐步推行上级人民法院法官主要从下级人民法院优秀法官中选任以及从其他优秀法律人才中选任的制度。

38、加强不同地区法院之间和上下级法院法官的交流任职工作,推进人民法院内部各相近业务部门之间的法官交流和轮岗制度。

39、建立法官任职前的培训制度,改革在职法官培训制度。初任法官任职前须参加国家法官学院或者其委托的培训机构组织的职业培训。改革法官培训的内容、方式和管理制度,研究开发适合法官职业特点的培训课程和培训教材,改革法官培训机构的师资选配方式。

40、落实法官法的规定,推动适合法官职业特点的任用、晋升、奖励、抚恤、医疗保障和工资、福利、津贴制度的建立和完善。在确定法官员额的基础上,逐步提高法官待遇。

七、改革和完善人民法院内部监督与接受外部监督的制度

41、建立科学、统一的审判质量和效率评估体系。在确保法官依法独立判案的前提下,确立科学的评估标准,完善评估机制。

42、改革法官考评制度和人民法院其他工作人员考核制度,发挥法官考评委员会的作用。根据法官职业特点和不同审判业务岗位的具体要求,科学设计考评项目,完善考评方法,统一法官绩效考评的标准和程序,并对法官考评结果进行合理利用。建立人民法院其他工作的评价机制。

43、建立健全符合法官职业特点的法官惩戒制度,制定法官惩戒程序规则,规范法官惩戒的条件、案件审理程序以及救济途径等,保障受到投诉或查处法官的正当权利。

44、完善人民法院自觉接受权力机关监督的方式、程序,健全接受人大代表、政协委员的批评、建议的制度,完善人大代表、政协委员旁听法院审判以及人民法院与人大代表、政协委员联络等制度。

45、落实人民检察院检察长或者检察长委托的副检察长列席同级人民法院审判委员会的制度。

46、规范人民法院与新闻媒体的关系,建立既能让社会全面了解法院工作、又能有效维护人民法院依法独立审判的新机制。人民法院建立和完善新闻发言人制度,及时向社会和媒体通报人民法院审判工作和其他各项工作情况,自觉接受人民群众监督。

八、继续探索人民法院体制改革

47、继续探索人民法院的设置、人财物管理体制改革,为人民法院依法公正、独立行使审判权提供组织保障和物质保障。

48、改革和完善人民法院经费保障体制,探索建立人民法院的业务经费由国家财政统一保障、分别列入中央财政和省级财政的体制。研究制定基层人民法院的经费基本保障标准。

49、配合有关部门改革现行铁路、林业、石油、农垦、矿山等部门、企业管理法院人财物的体制。

50、完善审理未成年人刑事案件和涉及未成年人权益保护的民事、行政案件的组织机构,在具备条件的大城市开展设立少年法院的试点工作,以适应未成年人司法工作的特殊需要,推动建立和完善中国特色少年司法制度。

人民法院的司法改革是一个不断解放思想、更新观念和不断推动理论创新与制度创新的过程。为此,各级人民法院要按照本纲要的要求,深入研究和把握司法客观规 律,深刻理解和牢固树立现代司法理念,以改革的思维推进司法改革;要进一步加强组织领导工作,完善协调机制,健全相关制度,周密组织,妥善安排,认真落 实;要及时总结经验,加强理论指导,加强对具体改革方案的论证,把实现“公正与效率”这一主题作为检验改革效果的基本标准,确保改革顺利和健康发展;要坚 持依法改革,通过改革促进我国法律制度的不断发展与完善,切实防止自发改革和违法改革。为确保本纲要的正确、统一、有序实施,最高人民法院将就各项改革措 施制定具体的实施方案,自上而下,统一实施。各级人民法院要坚持以邓小平理论和“三个代表”重要思想为指导,树立和落实科学发展观,认真贯彻落实中央关于 司法体制改革的精神,正确理解本纲要确立的改革指导思想、基本原则、基本目标、主要任务和基本要求,狠抓落实,务求实效,不断将人民法院的司法改革工作和 其他各项工作稳步推向前进,为建设我国社会主义现代司法制度,构建社会主义和谐社会而努力奋斗。

2005年10月26日