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GENERAL PRINCIPLES OF THE CIVIL LAW OF THE PEOPLE'S REPUBLIC OF CHINA

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GENERAL PRINCIPLES OF THE CIVIL LAW OF THE PEOPLE'S REPUBLIC OF CHINA ——附加英文版

The National People's Congress


GENERAL PRINCIPLES OF THE CIVIL LAW OF THE PEOPLE'S REPUBLIC OF CHINA

(Adopted at the Fourth Session of the Sixth National People's
Congress, promulgated by Order No. 37 of the President of the People's
Republic of China on April 12, 1986, and effective as of January 1, 1987)

Contents
Chapter I Basic Principles
Chapter II Citizen (Natural Person)
Section 1 Capacity for Civil Rights and Capacity for Civil
Conduct
Section 2 Guardianship
Section 3 Declarations of Missing Persons and Death
Section 4 Individual Businesses and Leaseholding Farm
Households
Section 5 Individual Partnership
Chapter III Legal Persons
Section 1 General Stipulations
Section 2 Enterprise as Legal Person
Section 3 Official Organ, Institution and Social
Organization as Legal Persons
Section 4 Economic Association
Chapter IV Civil Juristic Acts and Agency
Section 1 Civil Juristic Acts
Section 2 Agency
Chapter V Civil Rights
Section 1 Property Ownership and Related Property Rights
Section 2 Creditors' Rights
Section 3 Intellectual Property Rights
Section 4 Personal Rights
Chapter VI Civil Liability
Section 1 General Stipulations
Section 2 Civil Liability for Breach of Contract
Section 3 Civil Liability for Infringement of Rights
Section 4 Methods of Bearing Civil Liability
Chapter VII Limitation of Action
Chapter VIII Application of Law in Civil Relations with Foreigners
Chapter IX Supplementary Provisions

Chapter I Basic Principles
Article 1
This Law is formulated in accordance with the Constitution and the actual
situation in our country, drawing upon our practical experience in civil
activities, for the purpose of protecting the lawful civil rights and
interests of citizens and legal persons and correctly adjusting civil
relations, so as to meet the needs of the developing socialist
modernization.
Article 2
The Civil Law of the People's Republic of China shall adjust property
relationships and personal relationships between civil subjects with equal
status, that is, between citizens, between legal persons and between
citizens and legal persons.
Article 3
Parties to a civil activity shall have equal status.
Article 4
In civil activities, the principles of voluntariness, fairness, making
compensation for equal value, honesty and credibility shall be observed.
Article 5
The lawful civil rights and interests of citizens and legal persons shall
be protected by law; no organization or individual may infringe upon them.
Article 6
Civil activities must be in compliance with the law; where there are no
relevant provisions in the law, they shall be in compliance with state
policies.
Article 7
Civil activities shall have respect for social ethics and shall not harm
the public interest, undermine state economic plans or disrupt social
economic order.
Article 8
The law of the People's Republic of China shall apply to civil activities
within the People's Republic of China, except as otherwise stipulated by
law.
The stipulations of this Law as regards citizens shall apply to foreigners
and stateless persons within the People's Republic of China, except as
otherwise stipulated by law.

Chapter II Citizen (Natural Person)
Section 1 Capacity for Civil Rights and Capacity for Civil Conduct.
Article 9
A citizen shall have the capacity for civil rights from birth to death and
shall enjoy civil rights and assume civil obligations in accordance with
the law.
Article 10
All citizens are equal as regards their capacity for civil rights.
Article 11
A citizen aged 18 or over shall be an adult. He shall have full capacity
for civil conduct, may independently engage in civil activities and shall
be called a person with full capacity for civil conduct.
A citizen who has reached the age of 16 but not the age of 18 and whose
main source of income is his own labour shall be regarded as a person with
full capacity for civil conduct.
Article 12
A minor aged 10 or over shall be a person with limited capacity for civil
conduct and may engage in civil activities appropriate to his age and
intellect; in other civil activities, he shall be represented by his agent
ad litem or participate with the consent of his agent ad litem.
A minor under the age of 10 shall be a person having no capacity for civil
conduct and shall be represented in civil activities by his agent ad
litem.
Article 13
A mentally ill person who is unable to account for his own conduct shall
be a person having no capacity for civil conduct and shall be represented
in civil activities by his agent ad litem.
A mentally ill person who is unable to fully account for his own conduct
shall be a person with limited capacity for civil conduct and may engage
in civil activities appropriate to his mental health; in other civil
activities, he shall be represented by his agent ad litem or participate
with the consent of his agent ad litem.
Article 14
The guardian of a person without or with limited capacity for civil
conduct shall be his agent ad litem.
Article 15
The domicile of a citizen shall be the place where his residence is
registered; if his habitual residence is not the same as his domicile, his
habitual residence shall be regarded as his domicile.
Section 2 Guardianship
Article 16
The parents of a minor shall be his guardians.
If the parents of a minor are dead or lack the competence to be his
guardian, a person from the following categories who has the competence to
be a guardian shall act as his guardian:
(1) paternal or maternal grandparent;
(2) elder brother or sister; or
(3) any other closely connected relative or friend willing to bear the
responsibility of guardianship and having approval from the units of the
minor's parents or from the neighbourhood or village committee in the
place of the minor's residence. In case of a dispute over guardianship,
the units of the minor's parents or the neighbourhood or village committee
in the place of his residence shall appoint a guardian from among the
minor's near relatives. If disagreement over the appointment leads to a
lawsuit, the people's court shall make a ruling.
If none of the persons listed in the first two paragraphs of this article
is available to be the guardian, the units of the minor's parents, the
neighbourhood or village committee in the place of the minor's residence
or the civil affairs department shall act as his guardian.
Article 17
A person from the following categories shall act as guardian for a
mentally ill person without or with limited capacity for civil conduct:
(1) spouse;
(2) parent;
(3) adult child;
(4) any other near relative;
(5) any other closely connected relative or friend willing to bear the
responsibility of guardianship and having approval from the unit to which
the mentally ill person belongs or from the neighbourhood or village
committee in the place of his residence. In case of a dispute over
guardianship, the unit to which the mentally ill person belongs or the
neighbourhood or village committee in the place of his residence shall
appoint a guardian from among his near relatives. If disagreement over the
appointment leads to a lawsuit, the people's court shall make a ruling.
If none of the persons listed in the first paragraph of this article is
available to be the guardian, the unit to which the mentally ill person
belongs, the neighbourhood or village committee in the place of his
residence or the civil affairs department shall act as his guardian.
Article 18
A guardian shall fulfil his duty of guardianship and protect the person,
property and other lawful rights and interests of his ward. A guardian
shall not handle the property of his ward unless it is in the ward's
interests.
A guardian's rights to fulfil his guardianship in accordance with the law
shall be protected by law.
If a guardian does not fulfil his duties as guardian or infringes upon the
lawful rights and interests of his ward, he shall be held responsible; if
a guardian causes any property loss for his ward, he shall compensate for
such loss. The people's court may disqualify a guardian based on the
application of a concerned party or unit.
Article 19
A person who shares interests with a mental patient may apply to a
people's court for a declaration that the mental patient is a person
without or with limited capacity for civil conduct.
With the recovery of the health of a person who has been declared by a
people's court to be without or with limited capacity for civil conduct,
and upon his own application or that of an interested person, the people's
court may declare him to be a person with limited or full capacity for
civil conduct.
Section 3 Declarations of Missing Persons and Death
Article 20
If a citizen's whereabouts have been unknown for two years, an interested
person may apply to a people's court for a declaration of the citizen as
missing.
If a person's whereabouts become unknown during a war, the calculation of
the time period in which his whereabouts are unknown shall begin on the
final day of the war.
Article 21
A missing person's property shall be placed in the custody of his spouse,
parents, adult children or other closely connected relatives or friends.
In case of a dispute over custody, if the persons stipulated above are
unavailable or are incapable of taking such custody, the property shall be
placed in the custody of a person appointed by the people's court. Any
taxes, debts and other unpaid expenses owed by a missing person shall
defrayed by the custodian out of the missing person's property.
Article 22
In the event that a person who has been declared missing reappears or his
whereabouts are ascertained, the people's court shall, upon his own
application or that of an interested person, revoke the declaration of his
missing-person status.
Article 23
Under either of the following circumstances, an interested person may
apply to the people's court for a declaration of a citizen's death:
(1) if the citizen's whereabouts have been unknown for four years or
(2) if the citizen's whereabouts have been unknown for two years after the
date of an accident in which he was involved.
If a person's whereabouts become unknown during a war, the calculation of
the time period in which his whereabouts are unknown shall begin on the
final day of the war.
Article 24
In the event that a person who has been declared dead reappears or it is
ascertained that he is alive, the people's court shall, upon his own
application or that of an interested person, revoke the declaration of his
death.
Any civil juristic acts performed by a person with capacity for civil
conduct during the period in which he has been declared dead shall be
valid.
Article 25
A person shall have the right to request the return of his property, if
the declaration of his death has been revoked. Any citizen or organization
that has obtained such property in accordance with the Law of Succession
shall return the original items or make appropriate compensation if the
original items no longer exist.
Section 4 Individual Businesses and Leaseholding Farm Households
Article 26
"Individual businesses" refers to business run by individual citizens who
have been lawfully registered and approved to engage in industrial or
commercial operation within the sphere permitted by law. An individual
business may adopt a shop name.
Article 27
"Leaseholding farm households" refers to members of a rural collective
economic organization who engage in commodity production under a contract
and within the spheres permitted by law.
Article 28
The legitimate rights and interests of individual businesses and
leaseholding farm households shall be protected by law.
Article 29
The debts of an individual business or a leaseholding farm household shall
be secured with the individual's property if the business is operated by
an individual and with the family's property if the business is operated
by a family.
Section 5 Individual Partnership
Article 30
"Individual partnership" refers to two or more citizens associated in a
business and working together, with each providing funds, material
objects, techniques and so on according to an agreement.
Article 31
Partners shall make a written agreement covering the funds each is to
provide, the distribution of profits, the responsibility for debts, the
entering into and withdrawal from partnership, the ending of partnership
and other such matters.
Article 32
The property provided by the partners shall be under their unified
management and use. The property accumulated in a partnership operation
shall belong to all the partners.
Article 33
An individual partnership may adopt a shop name; it shall be approved and
registered in accordance with the law and conduct business operations
within the range as approved and registered.
Article 34
The operational activities of an individual partnership shall be decided
jointly by the partners, who each shall have the right to carry out and
supervise those activities. The partners may elect a responsible person.
All partners shall bear civil liability for the operational activities of
the responsible person and other personnel.
Article 35
A partnership's debts shall be secured with the partners' property in
proportion to their respective contributions to the investment or
according to the agreement made. Partners shall undertake joint liability
for their partnership's debts, except as otherwise stipulated by law. Any
partner who overpays his share of the partnership's debts shall have the
right to claim compensation from the other partners.

Chapter III Legal Persons
Section 1 General Stipulations
Article 36
A legal person shall be an organization that has capacity for civil rights
and capacity for civil conduct and independently enjoys civil rights and
assumes civil obligations in accordance with the law.
A legal person's capacity for civil rights and capacity for civil conduct
shall begin when the legal person is established and shall end when the
legal person terminates.
Article 37
A legal person shall have the following qualifications:
(1) establishment in accordance with the law;
(2) possession of the necessary property or funds;
(3) possession of its own name, organization and premises; and
(4) ability to independently bear civil liability.
Article 38
In accordance with the law or the articles of association of the legal
person, the responsible person who acts on behalf of the legal person in
exercising its functions and powers shall be its legal representative.
Article 39
A legal person's domicile shall be the place where its main administrative
office is located.
Article 40
When a legal person terminates, it shall go into liquidation in accordance
with the law and discontinue all other activities.
Section 2 Enterprise as Legal Person
Article 41
An enterprise owned by the whole people or under collective ownership
shall be qualified as a legal person when it has sufficient funds as
stipulated by the state; has articles of association, an organization and
premises; has the ability to independently bear civil liability; and has
been approved and registered by the competent authority. A Chinese-
foreign equity joint venture, Chinese-foreign contractual joint venture or
foreign-capital enterprise established within the People's Republic of
China shall be qualified as a legal person in China if it has the
qualifications of a legal person and has been approved and registered by
the administrative agency for industry and commerce in according with the
law.
Article 42
An enterprise as legal person shall conduct operations within the range
approved and registered.
Article 43
An enterprise as legal person shall bear civil liability for the
operational activities of its legal representatives and other personnel.
Article 44
If an enterprise as legal person is divided or merged or undergoes any
other important change, it shall register the change with the registration
authority and publicly announce it.
When an enterprise as legal person is divided or merged, its rights and
obligations shall be enjoyed and assumed by the new legal person that
results from the change.
Article 45
An enterprise as legal person shall terminate for any of the following
reasons:
(1) if it is dissolved by law;
(2) if it is disbanded;
(3) if it is declared bankrupt in accordance with the law; or
(4) for other reasons.
Article 46
When an enterprise as legal person terminates, it shall cancel its
registration with the registration authority and publicly announce the
termination.
Article 47
When an enterprise as legal person is disbanded, it shall establish a
liquidation organization and go into liquidation. When an enterprise as
legal person is dissolved or is declared bankrupt, the competent authority
or a people's court shall organize the organs and personnel concerned to
establish a liquidation organization to liquidate the enterprise.
Article 48
An enterprise owned by the whole people, as legal person, shall bear civil
liability with the property that the state authorizes it to manage. An
enterprise under collective ownership, as legal person, shall bear civil
liability with the property it owns. A Chinese-foreign equity joint
venture, Chinese-foreign contractual joint venture or foreign-capital
enterprise as legal person shall bear civil liability with the property it
owns, except as stipulated otherwise by law.
Article 49
Under any of the following circumstances, an enterprise as legal person
shall bear liability, its legal representative may additionally be given
administrative sanctions and fined and, if the offence constitutes a
crime, criminal responsibility shall be investigated in accordance with
the law:
(1) conducting illegal operations beyond the range approved and registered
by the registration authority;
(2) concealing facts from the registration and tax authorities and
practising fraud;
(3) secretly withdrawing funds or hiding property to evade repayment of
debts;
(4) disposing of property without authorization after the enterprise is
dissolved, disbanded or declared bankrupt;
(5) failing to apply for registration and make a public announcement
promptly when the enterprise undergoes a change or terminates, thus
causing interested persons to suffer heavy losses;
(6) engaging in other activities prohibited by law, damaging the interests
of the state or the public interest.
Section 3 Official Organ, Institution and Social Organization as Legal
Person
Article 50
An independently funded official organ shall be qualified as a legal
person on the day it is established.
If according to law an institution or social organization having the
qualifications of a legal person needs not go through the procedures for
registering as a legal person, it shall be qualified as a legal person on
the day it is established; if according to law it does need to go through
the registration procedures, it shall be qualified as a legal person after
being approved and registered.
Section 4 Economic Association
Article 51
If a new economic entity is formed by enterprises or an enterprise and an
institution that engage in economic association and it independently bears
civil liability and has the qualifications of a legal person, the new
entity shall be qualified as a legal person after being approved and
registered by the competent authority.
Article 52
If the enterprises or an enterprise and an institution that engage in
economic association conduct joint operation but do not have the
qualifications of a legal person, each party to the association shall, in
proportion to its respective contribution to the investment or according
to the agreement made, bear civil liability with the property each party
owns or manages. If joint liability is specified by law or by agreement,
the parties shall assume joint liability.
Article 53
If the contract for economic association of enterprises or of an
enterprise and an institution specifies that each party shall conduct
operations independently, it shall stipulate the rights and obligations of
each party, and each party shall bear civil liability separately.

Chapter IV Civil Juristic Acts and Agency
Section 1 Civil Juristic Acts
Article 54
A civil juristic act shall be the lawful act of a citizen or legal person
to establish, change or terminate civil rights and obligations.
Article 55
A civil juristic act shall meet the following requirements:
(1) the actor has relevant capacity for civil conduct;
(2) the intention expressed is genuine; and
(3) the act does not violate the law or the public interest.
Article 56
A civil juristic act may be in written, oral or other form. If the law
stipulates that a particular form be adopted, such stipulation shall be
observed.
Article 57
A civil juristic act shall be legally binding once it is instituted. The
actor shall not alter or rescind his act except in accordance with the law
or with the other party's consent.
Article 58
Civil acts in the following categories shall be null and void:
(1) those performed by a person without capacity for civil conduct;
(2) those that according to law may not be independently performed by a
person with limited capacity for civil conduct;
(3) those performed by a person against his true intentions as a result of
cheating, coercion or exploitation of his unfavourable position by the
other party;
(4) those that performed through malicious collusion are detrimental to
the interest of the state, a collective or a third party;
(5) those that violate the law or the public interest;
(6) economic contracts that violate the state's mandatory plans; and
(7) those that performed under the guise of legitimate acts conceal
illegitimate purposes. Civil acts that are null and void shall not be
legally binding from the very beginning.
Article 59
A party shall have the right to request a people's court or an arbitration
agency to alter or rescind the following civil acts:
(1) those performed by an actor who seriously misunderstood the contents
of the acts;
(2) those that are obviously unfair.
Rescinded civil acts shall be null and void from the very beginning.
Article 60
If part of a civil act is null and void, it shall not affect the validity
of other parts.
Article 61
After a civil act has been determined to be null and void or has been
rescinded, the party who acquired property as a result of the act shall
return it to the party who suffered a loss. The erring party shall
compensate the other party for the losses it suffered as a result of the
act; if both sides are in error, they shall each bear their proper share
of the responsibility.
If the two sides have conspired maliciously and performed a civil act that
is detrimental to the interests of the state, a collective or a third
party, the property that they thus obtained shall be recovered and turned
over to the state or the collective, or returned to the third party.
Article 62
A civil juristic act may have conditions attached to it. Conditional civil
juristic acts shall take effect when the relevant conditions are met.
Section 2 Agency
Article 63
Citizens and legal persons may perform civil juristic acts through agents
An agent shall perform civil juristic acts in the principal's name within
the scope of the power of agency. The principal shall bear civil liability
for the agent's acts of agency. Civil juristic acts that should be
performed by the principal himself, pursuant to legal provisions or the
agreement between the two parties, shall not be entrusted to an agent.
Article 64
Agency shall include entrusted agency, statutory agency and appointed
agency. An entrusted agent shall exercise the power of agency as
entrusted by the principal; a statutory agent shall exercise the power of
agency as prescribed by law; and an appointed agent shall exercise the
power of agency as designated by a people's court or the appointing unit.
Article 65
A civil juristic act may be entrusted to an agent in writing or orally. If
legal provisions require the entrustment to be written, it shall be
effected in writing. Where the entrustment of agency is in writing, the
power of attorney shall clearly state the agent's name, the entrusted
tasks and the scope and duration of the power of agency, and it shall be
signed or sealed by the principal.
If the power of attorney is not clear as to the authority conferred, the
principal shall bear civil liability towards the third party, and the
agent shall be held jointly liable.
Article 66
The principal shall bear civil liability for an act performed by an actor
with no power of agency, beyond the scope of his power of agency or after
his power of agency has expired, only if he recognizes the act
retroactively. If the act is not so recognized, the performer shall bear
civil liability for it. If a principal is aware that a civil act is being
executed in his name but fails to repudiate it, his consent shall be
deemed to have been given.
An agent shall bear civil liability if he fails to perform his duties and
thus causes damage to the principal.
If an agent and a third party in collusion harm the principal's interests,
the agent and the third party shall be held jointly liable.
If a third party is aware that an actor has no power of agency, is
overstepping his power of agency, or his power of agency has expired and
yet joins him in a civil act and thus brings damage to other people, the
third party and the actor shall be held jointly liable.
Article 67
If an agent is aware that the matters entrusted are illegal but still
carries them out, or if a principal is aware that his agent's acts are
illegal but fails to object to them, the principal and the agent shall be
held jointly liable.
Article 68
If in the principal's interests an entrusted agent needs to transfer the

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黑河市人民政府关于印发黑河市行政问责暂行办法(试行)的通知

黑龙江省黑河市人民政府


黑河市人民政府关于印发黑河市行政问责暂行办法(试行)的通知


黑市政字〔2008〕56号


各县(市)区人民政府、五大连池管委会,市直各有关单位:
《黑河市行政问责暂行办法(试行)》经2008年8月12日市政府第五次常务会议讨论通过,现印发给你们,请认真遵照执行。
  特此通知。



          二○○八年八月二十一日

黑河市行政问责暂行办法(试行)

第一章 总 则

第一条 为强化行政责任,促进行政部门及其工作人员恪尽职守、依法行政,确保政令畅通,提高行政效能,防止和减少行政过错,建设勤政、廉洁、务实、高效的服务型政府,更好的维护群众利益和促进经济发展,根据《中华人民共和国公务员法》、《中华人民共和国行政监察法》、《行政机关公务员处分条例》和《国家公务员行为规范》等有关法律、法规,制定本办法。
第二条 本办法所称的行政问责,是指行政部门领导及其工作人员不履行或不正确履行法定的职责,导致行政秩序混乱和行政效率低下,贻误行政工作,发生行政不作为、乱作为等行政过错,或者损害行政相对人的合法权益,造成不良影响和后果的行为,所实行的行政部门内部监督和责任追究制度。
第三条 黑河市各级行政机关、直属机构及其派出机构和具有公共事务管理职能的组织(以下统称行政部门)的领导及工作人员因故意或过失行为导致行政过错,但尚未构成犯罪的,适用本办法。
第四条 行政问责主体为各级政府,政府及其部门应成立行政问责办公室或指定某一部门负责行政问责工作。市政府行政问责办公室由市政府办、监察局、人事局、法制办组成。
第五条 行政问责应坚持客观公正、实事求是、权责统一、奖罚分明、过错与责任相一致、教育与惩戒相结合、干部管理权限和分级负责相统一、谁主管谁负责的原则。

第二章 行政问责范围

第六条 行政部门执行上级部门决策和部署不力,有下列情形之一的,应当对其领导问责:
(一)不贯彻执行或不正确贯彻执行法律、法规、规章以及上级部门依法作出的决定、命令、决策和部署,给公共利益、行政相对人合法权益、国家财产造成严重损失的;
(二)在执行上级党委、政府的指示或交办事项过程中,效率低下,致使党委、政府部署的重要工作不能按时完成,影响全局工作的;
(三)对于本级人民代表大会及其常务委员会在执法检查中指出的问题和错误不及时解决和纠正的;
(四)对人民法院作出的生效判决和上级部门作出的复议决定,以及监察机关、审计机关、政府法制机构等行政监督部门依法所作出的决定拒不执行的;
(五)其它执行上级部门决策决定不力的。
第七条 行政部门违反规定进行决策,发生重大决策失误,有下列情形之一的,应当对其领导问责:
(一)超越部门权限或违反法定程序擅自决策,制定与法律、法规、规章或者上级政策规定相抵触的规范性文件、行政决定或者命令的;
(二)重大决策、重大项目安排、大额度资金使用等事项不按照规定的程序和议事规则进行,重大决策事项不按照规定进行公开、公示、组织咨询论证或者可行性论证的;
(三)社会涉及面广、与人民群众利益密切相关的决策事项,未按照规定通过组织听证会、论证会等形式听取意见的;
(四)在建设工程招投标、专项资金使用、国有资产转让、政府采购、产权交易和土地征收、划拨及出让等重大问题上不按法律法规和规章制度办理,违规操作的;
(五)因决策失误、工作疏忽和违规操作等人为因素造成重大人员伤亡或财产损失、生态环境破坏或其它不良社会影响的;
(六)违法设定或实施行政许可、行政审批、行政处罚、行政征收、行政检查、行政强制等行政行为的;
(七)其它违法违规决策或决策失误的。
第八条 行政部门治政失当发生不作为、乱作为等行政过错,有下列情形之一的,应当对其领导问责:
(一)对企业进行刁难勒卡,影响企业正常生产经营活动,给企业造成经济损失,损害经济发展环境的;
(二)无合法依据实施行政许可或不按照规定方式实施行政许可,对符合规定条件的申请应予受理而不予受理或不在法定期限内作出行政许可决定的;
(三)未按照有关规定和要求建立健全安全工作规章制度,制定公共突发事件应急预案,或者发现重大公共安全、生产安全隐患后不依法采取措施,出现重特大责任事故,造成不良社会影响的;
(四)发生重特大突发公共事件时,没有及时向上级报告,或未按照相关法律规定、上级要求和实际情况,及时、妥善、有效处理和组织救援工作,处置失当造成后果的;
(五)森林防火宣传不到位,火源管理规定不落实,隐患排查不认真,致使发生森林火灾的;
(六)发生森林火情,迟报、瞒报或没有立即组织扑救而贻误扑火战机,造成严重损失和影响的;
(七)对涉及人民群众合法利益的合理诉求能够解决而不及时解决,导致生产、工作、人民群众生活和社会正常秩序受到影响的;
(八)采取授意、打招呼、批条子、指定、强令等方式,影响和干预市场经济活动,或者对扰乱市场经济秩序等行为监管不力,纵容、包庇的;
(九)截留、滞留、挤占或挪用专项资金的;
(十)行政部门直接负责或下属单位直接管理的重大建设项目发生重大失误或存在严重质量问题的;
(十一)违反规定安排使用救灾救济、低保社保、失业就业等财政资金和国有资产,造成资金浪费或国有资产流失的;
(十二)监督管理不力,致使本部门工作人员发生滥用职权、徇私舞弊和失职、渎职等严重违法违纪行为的;
(十三)违反法律、法规委托授权其它组织或个人行使相关行政职权,或不依法对受委托者行使行政职权的行为进行监管,或因监督不力,造成不良影响等后果的;
(十四)其它治政失当行为的。
第九条 行政部门有不诚信行为,社会公信力低、失信于民造成影响,有下列情形之一的,应当对其领导问责:
(一)未按规定内容、时限、程序进行政务公开,或行政部门公布的信息不准确、不真实,侵害群众知情权、参与权和监督权的;
(二)非因法定事由并经法定程序,撤销、变更已经生效的行政决定,给行政相对人造成损失的;
(三)没有兑现对社会各界和群众做出的承诺,不履行职责为群众认真解决各类困难的;
(四)对外来投资者做出超出现实的政策优惠承诺,无法兑现给外来投资者造成损失的;
(五)其它失信行为的。
第十条 行政部门领导班子不认真履行内部管理责任,有下列情形之一的,应当对其领导问责:
(一)本部门办事效率低下,服务质量差,人为拖延办事时间,给行政相对人造成不便的;
(二)在推进各类项目建设过程中不认真履行职责,影响项目建设进度,给经济社会发展带来损失的;
(三)指使、授意本部门工作人员弄虚作假的;
(四)指使、授意、纵容本部门工作人员阻挠、干预、对抗监督检查或案件查处,或对办案人、检举人、控告人、证明人打击报复的;
(五)因管理不力造成本部门工作人员被行政问责或造成其它严重后果和不良社会影响的;
(六)对本部门的违纪、违法行为隐瞒不报,包庇、袒护、纵容的;
(七)被投诉单位对收到的行政投诉案件不调查、不处理、不整改,弄虚作假,以及在行政复议、行政应诉和信访复查、复核中不提交或逾期提交书面答复、相关依据证据等有关材料的;
(八)其它不认真履行内部管理责任的。
第十一条 行政部门工作人员发生行为失范等行政过错,有下列情形之一的,应当问责:
(一)对依法、依规应办理的事项,党委、政府和上级部门决定的事项,不按规定和要求落实,敷衍塞责、推诿扯皮,拖延或顶着不办的;
(二)滥用职权,违反程序规定,乱执法、乱罚款、乱收费,侵害公民、法人或其他组织合法权益的;
(三)对外来办事人员态度生硬蛮横、推诿拖延、刁难勒卡,甚至因言行不文明导致冲突,给行政相对人造成不便和损失的;
(四)在工作时间内擅自离开工作岗位,或因其它工作原因离开工作岗位时不委托有关人员代行其职责而耽误行政相对人办事,或在上班时间从事无关工作事务等违反纪律的行为,并造成不良影响的;
(五)不执行或不正确执行一次性告知等“六项制度”,给服务对象或当事人带来不便或麻烦,造成不良影响的;
(六)弄虚作假,误导、欺骗上级领导和公众的;
(七)行政执法执纪人员所办案件在行政复议和行政诉讼中被认定错案或败诉的;
(八)对来文、来电、来函,未按规定签收、登记、审核、提出拟办意见,无正当理由未按规定及时处理或报送领导批示,贻误工作,造成不良影响和后果的;
(九)对职责范围内的工作目标、工作任务和上级交办的事项,无正当理由未在规定时限内完成或作出明确答复的;
(十)在工作中,未严格执行保密和文件管理规定,致使文件、档案资料泄密、损毁或丢失的;
(十一)未按规定使用公章及信函等政府印鉴文书的;
(十二)工作中需要与有关部门共同研究解决的事项,当协商不能取得一致时,未及时报请上级领导或部门裁决,致使问题久拖不决,造成不良影响和后果的;
(十三)其它行政过错行为的。

第三章 行政过错责任的划分

第十二条 行政问责实行行政过错责任原则。行政过错责任分为直接责任、主要领导责任和重要领导责任。
(一)承办人未经审核人、批准人批准,直接作出具体行政行为,导致行政过错发生的,负直接责任。承办人弄虚作假、徇私舞弊,致使审核人、批准人不能正确履行审核、批准职责,导致行政过错发生的,负直接责任。承办人不依照审核、批准的内容实施具体行政行为,导致行政过错发生的,负直接责任;
(二)承办人提出的方案或意见有错误,审核人、批准人应当发现而没有发现,导致行政过错发生的,承办人负直接责任,审核人负主要领导责任,批准人负重要领导责任;
(三)审核人不采纳或改变承办人正确意见,经批准人批准导致行政过错发生的,审核人负直接责任,批准人负主要领导责任。审核人不报请批准人批准直接作出决定,导致行政过错发生的,审核人负直接责任;
(四)批准人不采纳或改变承办人、审核人正确意见,导致行政过错发生的,批准人负直接责任。未经承办人拟办、审核人审核,批准人直接作出决定,导致行政过错发生的,批准人负直接责任;
(五)经集体研究认定导致行政过错发生的,决策人、持赞同意见的人和不发表意见的人负直接责任;
(六)上级机关改变下级机关作出的具体行政行为,导致行政过错发生的,上级机关负责人负主要领导责任;
(七)承办人不履行规定职责的,负直接责任。审核人或者批准人指令承办人不履行规定职责的,作出指令的人员负直接责任。审核人作出的指令经批准人同意的,审核人负直接责任,批准人负主要领导责任;
(八)本办法所称批准人,一般指行政机关的行政首长及其副职人员;审核人,一般指行政机关内设机构的负责人及其副职人员;承办人,一般指具体承办行政管理事项的工作人员。但是,依照内部分工或者经行政授权,由其他工作人员行使批准权、审核权的,具体行使批准权、审核权的人员为批准人、审核人。

第四章 行政问责方式

第十三条 行政部门领导被问责的,应依法采取下列方式追究责任:
(一)作出书面检查;
(二)取消当年评选先、优、模资格;
(三)责令限期整改;
(四)通报批评;
(五)扣发奖金;
(六)诫勉谈话;
(七)停职检查;
(八)免职;
(九)责令辞职;
(十)辞退;
(十一)给予行政处分;
(十二)法律法规规定的其他方式。
上述规定的方式,可以单处或者并处。
第十四条 行政部门工作人员被问责的,应依法采取以下方式追究责任:
(一)作出书面检查;
(二)取消当年评选先、优、模资格;
(三)通报批评;
(四)扣发奖金;
(五)诫勉谈话;
(六)调整工作岗位;
(七)辞退;
(八)给予行政处分;
(九)法律法规规定的其他方式。
上述规定的方式,可以单处或者并处。
第十五条 行政过错责任人有下列行为之一的,应当从重处理:
(一)一年内出现两次以上应予问责行政过错情形的;
(二)干扰、阻碍、不配合对其行政过错行为进行调查的;
(三)隐瞒行政过错或行政赔偿案件的;
(四)对投诉人、检举人、控告人打击、报复、陷害的;
(五)在履行职责过程中有徇私舞弊行为及收受当事人财物、接受当事人宴请、参加当事人提供的旅游和娱乐活动的;
(六)行政过错人主观上存在故意,情节严重,影响恶劣的。
第十六条 行政过错责任人有下列情形之一的,可以从轻或者减轻处理:
(一)主动承认过错并及时纠正错误,采取各种有效措施减少损失,挽回不良影响的;
(二)过错行为情节轻微,没有造成危害后果的;
(三)有其它减轻处理情形的。
第十七条 有下列情形之一的,不追究行政部门工作人员的行政过错责任:
(一)法律、法规、规章和内部行政管理制度未作规定或规定不具体,致使行政部门工作人员无法准确执行的;
(二)因执行错误的命令、决定,本人当时提出异议而领导未采纳的;
(三)出现意外或不可抗力因素致使行政过错情形发生的;
(四)其它不追究行政部门工作人员责任的情形。
第十八条 被行政问责的领导和工作人员在当年公务员年度考核中不得评为优秀档次。部门主要领导或多名(三人以上)工作人员被行政问责的,该部门在当年目标管理考核中不得评为优秀档次。

第五章 行政问责的程序

第十九条 行政问责程序按照《中华人民共和国公务员法》、《中华人民共和国行政监察法》、《行政机关公务员处分条例》、《行政监察法实施条例》和《党政干部选拔任用条例》等有关规定履行。行政问责对象需要给予党纪处理的,应移交有关党组织或党的纪律检查机关;涉嫌犯罪的,应及时移送司法机关。
第二十条 市长或主管市长发现行政部门主要领导有本办法规定的问责情形或下列问责信息,指令行政问责办公室启动问责程序,或行政问责办公室根据下列问责信息,经主管领导批准后启动问责程序:
(一)公民、法人或其他组织署名的举报和申诉;
(二)上级领导机关的指示、批示;
(三)行政执法、执法监督和司法机关提出的问责建议;
(四)人大代表、政协委员提出的问责建议;
(五)主要情节属实的新闻媒体曝光材料;
(六)其它问责信息来源。
第二十一条 问责程序启动后,行政问责办公室组织协调相关职能部门组成调查组进行问责,或移交所在部门进行问责。各级行政部门对行政问责办公室移交或自行发现的本部门工作人员的行政过错行为,直接调查后进行问责,处理结果附调查报告报送市行政问责办公室备案。
第二十二条 调查组应在规定期限内完成调查工作,并提出具体处理建议。需要按本办法第十三条规定的方式追究行政领导责任的,应将调查结果和处理建议提交同级政府常务会议决定。需要按本办法第十四条规定的方式追究行政部门工作人员责任的,应将调查结果和处理建议移交其任免机关或其所在机关办理。
第二十三条 调查结束后,应将调查结果书面告知被调查的行政部门的主要领导,并征询其对调查事实是否持有异议。对行政部门领导及其工作人员作出的问责或者不予问责的决定,应书面通知被问责部门或单位及被问责的责任人,并告知其拥有申诉权。
第二十四条 行政问责实行回避制度。行政问责调查人员与行政过错行为人有利害关系、可能影响公正处理的,应当实行回避。
第二十五条 拟被问责的行政部门领导及其工作人员在问责期间对调查事实持有异议的,可以就问责的事项向上级部门陈述和申辩。
第二十六条 对行政处分和其它人事处理决定不服的,分别依照《中华人民共和国公务员法》、《中华人民共和国行政监察法》和《行政机关公务员处分条例》等有关法律法规办理。
复查、复核(复审)期间,不停止原决定的执行。行政机关公务员不因提出申诉、复核(复审)而被加重处理。
第二十七条 作出处理决定的部门根据复查或复核报告,分别作出以下决定:
(一)原调查报告事实清楚,证据确凿的,原问责决定继续执行;
(二)原调查报告事实基本清楚,证据基本确凿,但情节轻重有偏差的,改变追究责任的方式;
(三)原调查报告有重大错误或失误的,终止原追究责任的决定。
原调查人员不得参与复查及复核工作。
第二十八条 调查人员滥用职权、徇私舞弊、玩忽职守,导致调查报告出现重大错误或失误的,应当依照《行政机关公务员处分条例》和干部管理权限的规定给予行政处分。
因行政过错侵犯了公民、法人和其他组织的合法权益,造成损害并涉及赔偿的,依照《中华人民共和国国家赔偿法》等有关规定处理。

第六章 附 则

第二十九条 行政过错问责中,法律、法规和规章另有规定的,从其规定。
第三十条 本办法由黑河市行政问责办公室负责解释。
第三十一条 本办法自发布之日起施行。原《黑河市国家公务员公共服务行为问责暂行规定》(黑市政字〔2005〕34号)同时废止。






国家赔偿确认问题的探讨

作者:张朝泓

张某因涉嫌敲诈勒索罪被区公安局扣押现金6万元,之后,区公安局又扣押张某在农村信用社的存款10万元和在农业银行营业所的存款9万元,总共扣押张某25万元。区检察院以张某敲诈勒索受害人264200元,向区法院提起公诉,区法院认定了指控的事实并以敲诈勒索罪判处张某有期徒刑六年。张某不服,向二审法院提出上诉。二审法院将该案发回重新审理。区法院重审后仍认定张某敲诈勒索受害人264200元,再次以敲诈勒索罪判处张某有期徒刑六年。张某又不服,再次向二审法院提出上诉。二审法院作出终审刑事判决,认定张某敲诈勒索他人财物6万元,已构成敲诈勒索罪,依法判处有期徒刑三年。终审判决认为,由于张某与被害人原有不正当关系,被害人还应张某的要求多次拿钱给张某,没有及时报案,现双方又各执一词,致原给钱的行为是否被敲诈勒索难以认定,故原审法院认定张某的犯罪数额为264200元显然证据不足,应予纠正。张某在服刑期间授权委托律师向区公安局申请确认侦查期间扣押其名下存款19万元的行为违法并要求国家赔偿。区公安局不予确认、逾期不予赔偿。张某又向市公安局申请复议,市公安局也逾期不作决定。张某遂向二审法院赔偿委员会申请作出赔偿决定。

二审法院赔偿委员会能否立案受理作出赔偿决定?

一种观点认为:对张某作出有罪判决,但是判决结果未涉及,而已经被侦查机关在侦查过程中扣押的财产,应当视为对该部分财产采取的扣押行为已经被确认违法。因为,在刑事案件审判中,根据《刑法》规定,对犯罪所涉及的财产应当一并作出处理。人民法院有罪判决未处理的财产,应当视为是当事人与犯罪行为无关的财产。既然扣押的财产与当事人犯罪行为无关,侦查机关对该项财产所采取的扣押措施当然是违法的,无须另行确认。[1]司法机关以司法文书方式通过具体的决定、裁定、判决等行为造成赔偿请求人损害的,只要有新的法律文书从结果上已经否定司法机关先前行为的合法性的,就应当视为侵权行为的违法性已经得到确认。[2]在区公安局和市公安局逾期不予确认、不作决定的前提下,二审法院赔偿委员会应当立案受理张某的赔偿申请并作出决定。

第二种观点认为:赔偿委员会审理司法赔偿案件,必须具备违法侵权已经过确认的前提。除了纠正刑事案件的错误羁押的裁决可以视作已确认违法之外,其他案件均要经过侵权机关的违法侵权的确认才能进入司法赔偿程序。又由于当事人要求确认违法的案件,并非一定违法侵权。司法机关确认程序结束、确认未违法的案件,则不能作为司法赔偿案件进入司法赔偿程序。[3]

相类似的观点认为:在刑事赔偿中,人民法院有罪判决认定之外的财产,或人民法院以证据不足判无罪的涉案财产,有关机关是否可认定为“违法所得”,移送有关机关或直接返还被害人,还是应当直接返还赔偿请求人?此似宜应依不同情形作出不同处理:(1)如相对人有行政违法行为,财产属“违法所得”,应移送相应行政机关处理;(2)如相对人有行政违法行为,财产属被害人所有,亦应移送相应行政机关处理;(3)如相对人无行政违法行为,财产不属“违法所得”,应发还相对人;(4)如相对人无行政违法行为,财产属被害人所有,亦应发还相对人,责令相对人归还被害人,如相对人不归还,可通过民事诉讼途径解决。[4]因此,没有被人民法院有罪判决所认定的财产,存在多种可能的情况。人民法院有罪判决认定之外的财产,即生效刑事判决书认定的犯罪数额与公安起诉意见书、检察起诉书认定的犯罪数额不一致时,生效刑事判决书不能视为公安机关对有罪判决认定之外的财产侵犯的确认。是否存在《国家赔偿法》第十五条、第十六条规定情形之一的,应当依据《国家赔偿法》第二十条的规定办理。《国家赔偿法》第二十条第二款的规定,“赔偿请求人要求确认有本法第十五条、第十六条规定情形之一的,被要求的机关不予确认的,赔偿请求人有权申诉。”在公安机关逾期不予确认、不作决定的情况下,赔偿委员会不能就赔偿请求人的申请,依据《国家赔偿法》第二十一条、第二十二条的规定予以立案受理,赔偿请求人只能申诉。二审法院赔偿委员会不应立案受理张某的赔偿申请并作出赔偿决定。

上述是二种不同的观点。笔者认为,本案能否立案受理,这个问题实质涉及生效的终审刑事判决能否视为公安机关对有罪判决认定之外的财产扣押违法的确认?即能否视为确认的问题。

一、 确认违法程序和司法赔偿程序

赔偿确认指的是对国家赔偿及其赔偿义务机关的认可,违法侵权确认指的是对违法侵权行为的认定,我国国家赔偿程序中的确认当指违法侵权确认,不能用赔偿确认代替违法侵权确认。

设立确认违法程序的目的,就是要查清司法机关违法侵权的事实是否存在,而司法机关违法侵权则是给予司法赔偿,解决司法赔偿纠纷的基础和前提,属于司法赔偿程序审查的重要内容。又国家赔偿法将确认违法程序作为司法赔偿的前置程序,那么确认违法的条件也是司法赔偿的条件,故确认违法程序是整个司法赔偿程序的组成部分。[5]

许多人认为,国家赔偿法第三、四、十五、十六条即确认标准的规定,理由是第九、二十、三十条规定:“对依法确认有”上述四条“规定情形之一的,应当给予赔偿。”实际上,上述四条规定是国家赔偿范围的规定,而不是确认标准的规定。从国家赔偿法的体例来看,第三、四条的规定是行政赔偿范围,第十五、十六条规定的是刑事赔偿范围;第九、二十、三十条是关于赔偿程序的规定。也就是说,第九、二十、三十条关于“依法确认有”上述四条国家赔偿范围“规定情形”“应当给予赔偿”的规定,系指依法确认这些法定赔偿范围的违法侵犯人身权、财产权行为之情形是国家赔偿的充分必要条件。上述四个条文只是分别指出了行政赔偿和刑事赔偿范围中违法侵权情形的类型,如违法拘留、非法拘禁、错误逮捕、错误判决,这些违法侵权情形尚需经过依法确认才能从理论变为现实,至于如何确认有赖于具体的标准,比如说什么情况下属于违法拘留或者非法拘禁,什么情况下属于错误拘留或者错误逮捕以及错误判决,仅仅依据这四个条文是不能做出具体判断的,需要有明确的标准才能进行衡量。故而,国家赔偿法第三、四、十五、十六条尚不为确认违法侵权的标准,其他法律也没有作出确认违法侵权标准的规定。但是,国家赔偿法这四条规定的情形却是确认违法侵权标准的客体,即制定确认违法侵权的标准要针对这四条规定的情形而确定。[6]

《国家赔偿法》第二十条规定:“赔偿义务机关对依法确认有本法第十五条、第十六条规定的情形之一的,应当给予赔偿。赔偿请求人要求确认有本法第十五条、第十六条规定情形之一的,被要求的机关不予确认的,赔偿请求人有权申诉。赔偿请求人要求赔偿,应当先向赔偿义务机关提出。”即出现《国家赔偿法》第十五条、第十六条规定的刑事案件侵犯人身权、财产权的情形,确认违法与司法赔偿应该适用不同的程序。另《国家赔偿法》第三十一条规定:“人民法院在民事诉讼、行政诉讼过程中违法侵权应予赔偿的行为适用刑事赔偿程序。”即在民事诉讼、行政诉讼中的违法侵权行为的非刑事司法赔偿程序,也适用《国家赔偿法》第二十条规定的确认违法与司法赔偿分设的程序。但《国家赔偿法》第九条却规定:“赔偿请求人要求行政赔偿可以在提起行政诉讼时一并提出。”即确认违法与行政赔偿的程序可以合并,可以不适用《国家赔偿法》第二十条规定的程序。综上,除了行政赔偿外,司法赔偿(刑事案件实体、程序中涉及的刑事赔偿和民事诉讼、行政诉讼过程中涉及的非刑事司法赔偿)均应适用《国家赔偿法》第二十条规定的确认与赔偿分设的程序。也即赔偿请求人申请司法赔偿,必须先向侵权机关或者侵权机关的上级机关申请对违法行为进行确认,然后才能进入司法赔偿程序。[7]

最高人民法院《关于刑事赔偿和非刑事司法赔偿案件立案工作的暂行规定(试行)第三条明确规定:“赔偿请求人向人民法院、人民法院赔偿委员会提出赔偿申请的,赔偿义务机关的司法侵权行为应当先经依法确认”,最高人民检察院《人民检察院刑事赔偿工作暂行规定》第五条也有类似的规定。由此,根据现行法律及司法解释的规定,违法确认是司法赔偿的前提,这一点无可质疑。[8]

二、视同确认和应当确认

(一)、视同确认在司法赔偿中大量存在。

最高人民法院《关于审理人民法院国家赔偿确认案件若干问题的规定(试行)》第五条对人民法院赔偿的视同确认作出规定:“人民法院作出的下列情形之一的判决、裁定、决定,属于依法确认,当事人可以根据该判决、裁定、决定提出国家赔偿申请:(一)逮捕决定已经依法撤销的,但《中华人民共和国刑事诉讼法》第十五条规定的情形除外;(二)判决宣告无罪并已发生法律效力的;(三)实施了国家赔偿法第十五条第(四)、(五)项规定的行为责任人员已被依法追究的;(四)实施了国家赔偿法第十六条第(一)项规定行为,并已依法作出撤销决定的;(五)依法撤销违法司法拘留、罚款、财产保全、执行裁定、决定的;(六)对违法行为予以纠正的其他情形。”

最高人民检察院《人民检察院刑事赔偿工作规定》第七条第一款对人民检察院的视同确认也作出规定:“有下列法律文书或者证明材料的赔偿申请,申请赔偿的违法侵犯人身权情形,以确认论,应当进入赔偿程序:(一)人民检察院撤销拘留决定书;(二)人民检察院撤销逮捕决定书;(三)人民检察院撤销案件决定书;(四)不起诉决定书;(五)人民检察院予以纠正的复查决定书;(六)公安机关撤销案件后予以释放的证明书;(七)人民法院宣告无罪已经发生法律效力的刑事判决书、裁定书;(八)对检察机关工作人员在行使职权中刑讯逼供,或者以殴打等暴力行为,或者唆使他人以殴打等暴力行为造成公民身体伤害、死亡,作出处理决定的文书;(九)对违法使用武器、警械造成公民身体伤害、死亡,作出处理决定的文书。”

(二)、对于不属视同确认的,应当适用专门确认程序,由确认机关对被申请确认的司法行为是否违法进行确认。

最高人民法院《关于审理人民法院国家赔偿确认案件若干问题的规定(试行)》第十一条规定:“被申请确认的案件在原审判、执行过程中,具有下列情形之一的,应当确认违法:(一)人民法院决定逮捕的犯罪嫌疑人没有犯罪事实或者事实不清、证据不足,释放后,未依法撤销逮捕决定的;(二)查封、扣押、冻结、追缴与刑事案件无关的合法财产,并造成损害的;(三)违反法律规定对没有实施妨害诉讼行为的人、被执行人、协助执行人等,采取或者重复采取拘传、拘留、罚款等强制措施,且未依法撤销的;(四)司法拘留超过法律规定或者决定书确定的期限的;(五)超过法定金额实施司法罚款的;(六)违反法律规定采取或者解除保全措施,给确认申请人造成伤害的;(七)超标的查封、扣押、冻结、变卖或者执行确认申请人可分割的财产,给申请人造成伤害的;(八)违反法律规定,重复查封、扣押、冻结确认申请人财产,给申请人造成伤害的;(九)对查封、扣押的财物故意不履行监管职责,发生灭失或者其他严重后果,给确认申请人造成伤害的;(十)对已经发现的被执行人的财产,故意拖延执行或者不执行,导致被执行的财产流失,给确认申请人造成损害的;(十一)对应当恢复执行的案件不予恢复执行,导致被执行的财产流失,给确认申请人造成伤害的;(十二)违法查封、扣押、执行案外人财产,给案外人造成损害的;(十四)对依法应当拍卖的财产未拍卖,强行将财产变卖或者以物抵债,给确认申请人造成伤害的;(十五)违反法律规定的其他情形。”

最高人民检察院《人民检察院刑事赔偿工作规定》第七条第二款规定:“但是对人民检察院因证据不足作出撤销案件决定书、不起诉决定书或者人民法院因证据不足作出已经发生法律效力的刑事判决书、裁定书申请赔偿的,人民检察院的逮捕、拘留决定书有无违法情形,应当依法进行确认。”第八条规定:“证据不足的撤销案件、不起诉案件或者判决有罪的案件,应当由人民检察院分别下列情形对检察机关作出的逮捕、拘留决定有无侵犯人身权情形依法确认:(一)对不能证明有犯罪事实或者不能证明有犯罪重大嫌疑的人错误拘留的,予以确认;(二)对不能证明有犯罪事实的人错误逮捕的,予以确认;(三)对有证据证明有部分犯罪事实的人拘留、逮捕,或者有证据证明有犯罪重大嫌疑的人拘留的,不予确认。”第九条规定:“请求返还被人民检察院查封、扣押、冻结、追缴的财产的赔偿请求应当由人民检察院分别下列情形对有无违法侵犯财产权情形,依法进行确认:(一)人民检察院撤销案件决定书、不起诉决定书、复查纠正决定书及人民法院宣告无罪发生法律效力的判决书、裁定书,对查封、扣押、冻结、追缴的财产作出返还当事人决定的,或者具有对采取查封、扣押、冻结、追缴财产等措施认定为违法的法律文书的,以确认论;(二)没有履行必要的法律手续,查封、扣押、冻结、追缴当事人财产的,予以确认;(三)有证据证明查封、扣押、冻结、追缴的财产为当事人个人合法财产的,予以确认;(四)有证据证明查封、扣押、冻结、追缴的财产属于违法所得的,不予确认。”

公安部《关于公安机关贯彻实施有关问题的通知》第五条规定:“对于违法侵权事实尚未得到确认的赔偿请求,被控告有违法侵权的公安机关及有关部门或者上一级公安机关,应当首先对侵权事实和是否违法进行查证,对是否有违法侵权事实作出确认或者不予确认的决定。

目前,公安机关作为赔偿义务机关的国家赔偿案件,公安部门没有相应的规定哪些情形可以视为确认,哪些情形应当进行确认。

基于上述的有关规定,笔者认为,二审法院生效的终审刑事判决不能视为对区公安局多扣押张某19万元违法的确认。对张某的赔偿申请,二审法院赔偿委员会不能立案受理并作出赔偿决定。

从上述的案件,我们看到,根据现行法律规定,确认行为违法是请求国家赔偿的前提条件,是赔偿请求权人获得国家赔偿的必经程序,而申请确认启动的是内部监督机制,完全依靠侵权机关自律行为实现。在实践中,由于种种原因,确认程序成为请求权人难以跨越的一道门槛,请求权人很难拿下确认这个“入门证”,也就无法得到国家赔偿。改进确认法律框架的方向是,首次即在赔偿义务机关的上一级机关进行,请求人不服的,再逐步向更高一级司法机关申请确认,国家最高司法机关的确认为最终确认。建立司法确认选择机制,赔偿申请人可以选择向其上一级机关确认或直接向人民法院申请确认,便于当事人请求确认。[9] 或者可以设立一个统一的终局确认机关,行使对各司法赔偿确认申诉的办理,其决定意见为终局的确认意见。也可以考虑由人民法院行使对司法行为的终局确认权,设立专门的审判法庭,与行政审判庭并立,分别制约司法行为和行政行为。在人民法院设立司法审判庭,建立司法诉讼制度,以人民法院的审判权,对各司法机关的司法行为进行监督和审查,将对司法行为的审查纳入法院审查的体系中。所谓的司法诉讼,是指司法相对人与司法主体在司法法律关系领域发生纠纷后,依法向人民法院提起诉讼,人民法院依照法定程序审查司法主体的司法行为的合法性,并判断相对人的主张是否妥当,以作出裁判的一种活动。 [10]对赔偿事项不予确认的,赔偿请求人只能有权申诉的规定,不仅基本上堵住了许多赔偿请求人请求赔偿的救济途径,而且使得国家赔偿法第三章关于刑事以及非刑事的司法赔偿形同虚设。在实践中赔偿义务机关利用这一条的规定对应予确认而不予确认的赔偿案例屡见不鲜,虽然人民法院的赔偿委员会就此作了许多的努力,但因为《国家赔偿法》第二十条第二款的规定过于明确,因此难以作出解释。这个规定在修改《国家赔偿法》时,建议应当取消,变申诉为起诉似更妥当。[11]同时,可以考虑追加刑事案件中的被害人作为第三人参加司法诉讼,对有罪判决认定之外的财产进行确认并作出决定或判决。