行政诉讼跨区域管辖制度的完善研究

Research on the Improvement of the Cross-Regional Jurisdiction System in Administrative Litigation

摘要: 为了解决司法地方化的难题，减少行政机关在行政审判中对司法机关的不当干预，2014年《行政诉讼法》第18条第2款规定了“行政诉讼跨区域管辖制度”，作为“原告就被告”管辖原则的补充。由于该条的抽象性和模糊性，各地方在实践中纷纷开创了“异地交叉管辖”“相对集中管辖”“提级管辖”以及“铁路运输法院管辖”等新模式。在新模式运行下，司法地方化虽然在一定程度上有所缓解，但是由于我国行政诉讼跨区域管辖制度尚存在管辖法院确定的标准参差不齐、跨区域法院之间资源不协调、“两便原则”受到冲击以及跨区域影响了纠纷的实质性化解等问题，使得行政诉讼跨区域管辖制度遭遇瓶颈，为此探索跨区域管辖制度统一原则、优化行政审判资源、发展行政审判智慧型法院以及多主体之间的联动机制，推动跨区域管辖制度的完善与发展。

Abstract: To address the challenge of judicial localization and mitigate the improper interference of administrative organs in administrative adjudication, Article 18(2) of the Administrative Litigation Law of 2014 introduced the “cross-regional jurisdiction system for administrative litigation” as a supplement to the traditional “plaintiff follows defendant” jurisdiction principle. Owing to the abstractness and ambiguity of this statutory provision, local jurisdictions have independently developed diverse operational models in practice, including “cross-district reciprocal jurisdiction”, “relatively centralized jurisdiction”, “jurisdiction elevation”, and “railway transport court jurisdiction”. While these models have alleviated judicial localization to some extent, the cross-regional jurisdiction system in China still confronts bottlenecks: inconsistent criteria for determining competent cross-regional courts, uncoordinated resource allocation among cross-regional judicial bodies, erosion of the “principle of convenience for both parties and adjudication”, and impediments to the substantive resolution of disputes caused by cross-regional arrangements. To break through these bottlenecks, this paper proposes pathways to refine the system: exploring unified principles for cross-regional jurisdiction, optimizing administrative adjudication resources, developing intelligent administrative courts, and establishing a multi-stakeholder linkage mechanism, thereby advancing the improvement and sustainable development of the cross-regional jurisdiction system.