江西省行政机关实施行政许可听证办法
江西省人民政府
江西省行政机关实施行政许可听证办法（附：英文译本）
文号：江西省人民政府令第156号
《江西省行政机关实施行政许可听证办法》已经2007年4月23日省人民政府第58次常务会议审议通过，现予公布，自2007年7月1日起施行。
省长吴新雄
二○○七年四月二十九日
江西省行政机关实施行政许可听证办法
第一条 为规范行政机关实施行政许可的听证活动，保护公民、法人和其他组织的合法权益，维护公共利益和社会秩序，保障和监督行政机关有效实施行政许可，根据《中华人民共和国行政许可法》，结合本省实际，制定本办法。
第二条 本省行政区域内各级行政机关实施行政许可听证（以下简称听证），适用本办法。
法律、法规授权实施行政许可的具有管理公共事务职能的组织，适用本办法有关行政机关的规定。
第三条 行政机关实施下列行政许可事项，应当组织听证：
（一）法律、法规、规章规定实施行政许可应当听证的事项；
（二）行政机关认为需要听证的涉及公共利益的重大行政许可事项；
（三）被依法告知听证权利的行政许可申请人、利害关系人在法定期限内提出听证申请的事项。
第四条 听证应当遵循合法、公开、公平、公正、高效和便民的原则。
除涉及国家秘密、商业秘密或者个人隐私的外，听证会一律公开举行，并允许公民、法人和其他组织旁听，接受社会监督。
第五条 听证由有权作出行政许可决定的行政机关组织；依法接受委托实施行政许可的行政机关应当以委托行政机关的名义组织听证。
依法应当经两个或者两个以上行政机关分别实施的行政许可事项须听证的，应当分别组织听证，或者联合组织听证。
依法应当先经下级行政机关审查后，报上级行政机关决定的行政许可事项须听证的，由最终作出行政许可决定的行政机关组织听证；但该行政许可事项依法应当报国务院或者国务院部门作出行政许可决定的，按国家有关规定执行。
第六条 听证人包括：听证主持人、听证员、记录员。
听证主持人和听证员由行政机关负责人指定；记录员由听证主持人指定。
第七条 听证主持人应当符合下列条件：
（一）是审查该行政许可申请的工作人员以外的人员；
（二）熟悉听证程序以及与该行政许可事项有关的法律、法规、规章的规定；
（三）具有一定的组织能力；
（四）法律、法规、规章规定的其他条件。
第八条 听证主持人履行下列职责：
（一）组织制定听证方案；
（二）确定听证会的时间、地点；
（三）组织听证会的进行；
（四）接收有关证据；
（五）维持听证会秩序；
（六）组织提出听证报告书；
（七）法律、法规、规章和本办法规定的其他职责。
听证员负责协助听证主持人履行前款规定的职责。
第九条 听证参加人包括：行政机关审查该行政许可申请的工作人员、行政许可申请人、利害关系人，以及本办法第十一条规定的委托代理人、鉴定人、证人。
第十条 行政机关对本办法第三条第（一）、（二）项规定的行政许可事项，应当在作出行政许可决定前，以公告的形式向社会告知听证的事项、拟作出行政许可决定的主要内容，以及报名参加听证的办法等，公告的时间不得少于15日。
行政机关对本办法第三条第（三）项规定的行政许可事项，应当在作出行政许可决定前，书面告知行政许可申请人、利害关系人享有要求听证的权利；行政许可申请人、利害关系人在被告知听证权利之日起5日内提出听证申请的，行政机关应当在20日内组织听证。
第十一条 报名或者申请参加听证会的利害关系人较多时，组织听证的行政机关可以要求利害关系人在规定时间内自行推选代表人参加听证，并提交载明代表人基本情况的书面材料，由听证主持人审核确认；逾期未推选的，由组织听证的行政机关按照报名、申请的顺序或者采取抽签等公平、公开的方式确定代表人作为听证参加人，并予以公布。
前款代表人的人数，由组织听证的行政机关根据听证事项的具体情况，按照不同主张的人员人数基本相同的原则确定，并予以公布。
代表人参加听证的行为对其所代表的当事人发生效力，但代表人变更或者放弃听证主张的，应当经被代表的当事人同意。
第十二条 行政许可申请人、利害关系人可以委托1至2名代理人参加听证；委托代理人参加听证的，应当向组织听证的行政机关提交载明委托事项及权限，并由委托人签名或者盖章的授权委托书，由听证主持人审核确认。委托代理人代为变更或者放弃听证主张，或者代为放弃陈述权、申辩权、质证权的，应当有委托人的明确授权。
审查该行政许可申请的工作人员、行政许可申请人、利害关系人认为有关问题需要鉴定，或者有证人证明其听证主张的，可以请鉴定人或者证人参加听证，并向组织听证的行政机关提交有关的证明材料，由听证主持人审核确认。
第十三条 听证主持人有下列情形之一的，应当自行回避；行政许可申请人、利害关系人有权以口头或者书面形式申请其回避：
（一）是该行政许可申请的审查人员；
（二）与该行政许可申请人、利害关系人或者他们的委托代理人是近亲属的；
（三）与听证的行政许可事项有直接利害关系的；
（四）与该行政许可申请人、利害关系人有其他关系，可能影响听证的公正性的。
前款规定，适用于听证员、记录员、鉴定人。
听证主持人的回避，由行政机关负责人决定；听证员、记录员、鉴定人的回避，由听证主持人决定。
第十四条 组织听证的行政机关应当在听证会举行的7日前，向听证参加人送达《行政许可听证通知书》，必要时予以公告。
《行政许可听证通知书》应当载明下列事项：
（一）听证的行政许可事项；
（二）拟作出行政许可决定的主要内容；
（三）举行听证会的时间、地点；
（四）听证主持人的姓名、职务；
（五）其他应当载明的事项。
第十五条 听证会按照下列程序进行：
（一）听证主持人宣布听证会开始，介绍听证参加人和听证的行政许可事项，核对行政许可申请人、利害关系人的身份；
（二）听证员宣读听证会纪律；
（三）审查该行政许可申请的工作人员陈述审查意见及所依据的事实、理由和适用的法律、法规、规章，出示证据；
（四）行政许可申请人、利害关系人按照听证主持人安排的顺序，陈述主张及相关事实、理由和法律、法规、规章依据，出示证据；
（五）进行申辩和质证，需请鉴定人出示鉴定意见或者证人作证的，须经听证主持人允许；
（六）申辩和质证终结，审查该行政许可申请的工作人员、行政许可申请人、利害关系人按照听证主持人安排的顺序，作最后陈述；
（七）听证主持人宣布听证会结束。
听证主持人应当中立、客观、全面地听取听证参加人的陈述。
听证会举行的当日不能完成本条第一款规定程序的，听证主持人应当宣布择期继续举行听证会。
第十六条 在听证会进行过程中，听证主持人可以询问听证参加人；经听证主持人允许，审查该行政许可申请的工作人员、行政许可申请人、利害关系人可以相互发问，也可以向鉴定人、证人发问。
第十七条 听证应当制作听证笔录。听证笔录应当载明下列内容：
（一）听证的行政许可事项；
（二）听证主持人、听证员和记录员的姓名、职务；
（三）听证参加人的姓名、地址等基本情况和出席听证会的情况；
（四）听证会举行的时间、地点；
（五）听证会是否公开举行，不公开举行的理由；
（六）审查该行政许可申请的工作人员、行政许可申请人、利害关系人的陈述及提出的事实、理由、依据、证据；
（七）鉴定人的鉴定结论和证人证言；
（八）申辩和质证情况；
（九）听证主持人在听证会进行过程中对有关事项的处理情况；
（十）听证主持人认为应当记录的其他事项。
审查该行政许可申请的工作人员、行政许可申请人、利害关系人在听证时提出的经过质证的证据材料，应当作为听证笔录的附件。
第十八条 听证笔录应当由听证参加人签名或者盖章；听证参加人拒绝签名或者盖章的，应当记录在卷。
听证参加人认为听证笔录对自己的陈述记录有遗漏或者差错的，有权向听证主持人申请补正；不予补正的，应当将申请记录在卷。
第十九条 听证会结束后，听证主持人应当会同听证员、记录员在5日内，根据听证笔录制作听证报告书，连同听证笔录报送本行政机关负责人。
行政机关对依法举行了听证会的行政许可事项，应当根据听证笔录作出行政许可决定。
第二十条 有下列情形之一的，可以延期举行听证：
（一）因不可抗力导致听证会无法按期举行的；
（二）行政许可申请人、利害关系人申请延期，有正当理由的；
（三）依法可以延期的其他情形。
延期举行听证会的，组织听证的行政机关应当通知听证参加人；延期的情形消失后，组织听证的行政机关应当在3日内举行听证会，并书面通知听证参加人。
第二十一条 有下列情形之一，可以中止听证：
（一）听证会进行过程中提出新的事实、理由和证据，听证主持人认为有待调查核实的；
（二）回避申请在听证会开始后提出的；
（三）依法可以中止听证的其他情形。
中止听证的情形消失后，组织听证的行政机关应当在3日内恢复举行听证，并通知听证参加人。
第二十二条 有下列情形之一的，可以终止听证：
（一）行政许可申请人、利害关系人撤回申请的；
（二）行政许可申请人、利害关系人无正当理由不参加听证会，或者未经听证主持人允许中途退场的；
（三）依法应当终止听证程序的其他情形。
第二十三条 行政许可申请人、利害关系人对本办法第三条第（三）项规定的行政许可事项，在规定时间内均未提出听证申请的，视为放弃听证要求，行政机关应当作书面记载，并可以在对行政许可申请进行全面、客观、公正审查的基础上，依法作出行政许可决定。
第二十四条 行政机关及其工作人员违反《中华人民共和国行政许可法》和本办法的规定，有下列情形之一的，由其上级行政机关或者监察机关责令改正；情节严重的，对直接负责的主管人员和其他直接责任人员依法给予行政处分：
（一）未向行政许可申请人、利害关系人履行法定告知听证权利的义务的；
（二）依法应当举行听证而未举行听证的；
（三）不履行或者不正确履行听证职责的；
（四）未依据听证笔录作出行政许可决定的。
第二十五条 行政许可申请人、利害关系人或者其他人员扰乱听证会秩序或者有其他妨碍听证会正常进行行为的，听证主持人有权予以制止或者责令其退场；情节严重的，由公安机关依法给予治安管理处罚；构成犯罪的，依法追究刑事责任。
第二十六条 行政许可申请人、利害关系人不承担行政机关组织听证的费用。听证所需经费应当列入本行政机关的预算，由本级财政予以保障。
第二十七条 本办法规定的期限以工作日计算，不含法定节假日。
行政机关组织听证的时间，不计算在实施该行政许可事项的法定期限内；其实施行政许可的期限，自听证程序结束、终止的次日起接续计算。
第二十八条 本办法自2007年7月1日起施行。
英文译本
Measures of Jiangxi Province for Public Hearings of the Implementation of Administrative License by the Administrative Organ
These Measures of Jiangxi Province for Public Hearings of the Implementation of Administrative License by the Administrative Organ, adopted at the 58th session of the executive meeting of the People’s Government of Jiangxi Province on April 23, 2007, are hereby promulgated and shall come into effect as of July 1, 2007.
Governor: Wu Xinxiong
April 29, 2007
Article 1 In order to regulate the hearing procedures of implementation of Administrative License by the Administrative Organ, protect the legal rights and interests of citizens, legal persons and other organizations, safeguard the public interests and social order, and ensure and supervise the effective implementation of administrative license, these measures are formulated in accordance with the specific circumstances of the province and the Administrative License Law of the People's Republic of China.
Article 2 These measures shall apply to the public hearing of implementation of Administrative License by the administrative organs at all levels within the administrative areas of the province (hereinafter referred to as “hearing”).
The provisions concerning the administrative organ in these measures shall be applicable to the organization with a function of implementing Administrative License or managing public affairs under the authorization of a law or regulation.
Article 3 A hearing should be organized upon implementation of the following administrative license matters by the administrative organs:
(1) A hearing as provided for the implementation of administrative license in any law, regulation or rule;
(2) Any licensing matters considered by the administrative organ to be of great importance to the public interests;
(3) Licensing matters applied within the statutory time limit by the applicants and the interested parties of administrative license who have been informed the legal right to a hearing in accordance with law;
Article 4 The hearing shall observe the principles of legality, openness, fairness and impartiality, high efficiency and convenience.
The hearing shall be held in public except that it involves state secrets, business secrets and individual privacy. Citizens, legal persons and other organizations shall have the access to observing and supervising the hearing proceedings.
Article 5 The hearing should be organized by the administrative organs which are entitled to make administrative license decisions. The administrative organs which are legally entrusted with the implementation of the administrative license should organize the hearing in the name of the entrusting administrative organ.
If an administrative licensing matter to be implemented respectively by two or more administrative organs needs hearing, it should be organized separately or jointly.
In accordance with law, where an administrative license should be subject to the examination of the lower administrative organ before it is reported and submitted to the upper administrative organ for decision, the hearing should be organized by the administrative organ that makes the final administrative decision. But when an administrative license should be reported to the State Council or the departments under the State Council for administrative license decisions, the relevant state regulations prevail.
Article 6 The hearing staff includes the chairperson of the hearing, the hearing officers and the notetaker.
The chairperson of the hearings and the hearing officers shall be decided by the director of the administrative organ. The clerk shall be decided by the chairperson of the hearing.
Article 7 The chairperson of the hearings should meet the following requirements:
(1) Those who are not responsible for the examination of an application for administrative license;
(2) Those who are familiar with the hearing procedures of the administrative license and related laws, regulations and rules;
(3) Those with a certain organizing ability;
(4) Those who meet the other requirements stipulated in the laws, regulations and rules.
Article 8 The chairperson of the hearing shall perform the following functions during the hearing:
(1) Make the plan of the hearing;
(2) Decide the time and place of the hearings;
(3) Organize the hearings;
(4) Receive relevant evidence;
(5) Maintain the proper order of the hearings;
(6) Prepare and work out the hearing report;
(7) Fulfill other duties as provided in any law, regulation, rule and these measures.
The hearing officers shall assist the chairperson of the hearings in performing the functions and duties stipulated above.
Article 9 The participants of the hearing include the persons who are responsible for the examination of an application for administrative license, the applicants of administrative license, the interested parties，the entrusted agents, the identifiers and the witnesses as provided in Article 12 of these measures.
Article 10 For the administrative license matters listed in Items 1and 2 of Article 3，the administrative organ shall announce to the public the information about the matters under administrative license of the hearing， the main content of administrative license decisions and the way to participate in the hearing before making the administrative decision. The duration of the announcement shall not be less than 15 days.
For the administrative license matters listed in Item 3 of Article 3，the administrative organ shall inform the applicant of the administrative license or the interested party of the right to request for a hearing by means of written notice. Where the applicant or interested party applies for a hearing within 5 days from the day when he or she is informed of such right, the administrative organ shall organize a hearing within 20 days.
Article 11 When there are lots of interested parties applying to participate in the hearing, the administrative organ which organizes the hearing can ask the interested parties to select their own representatives to participate in the hearing in a specified time and submit written materials which contain basic information of the representatives for the chairperson to examine. If no representatives are selected within the time limit, the administrative organ that organizes the hearing should select the representatives according to the application order or by means of drawing straws or in other fair and open ways.
The number of representatives should be decided by the administrative organ that organizes the hearing according to the specific circumstances of the hearing and according to the basic principle that the numbers of people with different opinions are equally represented, and the number of the representatives should be announced.
The acts of such representatives in the hearing shall be valid for the party they represent; however, modification or waiver of the hearing claims by the representatives shall be subject to the consent of the party they represent.
Article 12 The applicants of the administrative license and the interested parties may entrust one or two agents to participate in the hearing. Where the entrusted agents participate in the hearing, a Power of Attorney containing the explicit description of the entrusted matters and the limits of authority and bearing the signature or seal of the entrusting party shall be submitted to the chairperson of the hearing for examining. Modification or waiver of the hearing claims or the disclamation of the rights to make statements, defend and conduct cross-examinations shall be subject to the authorization of the entrusting party.
If the persons who are responsible for the examination of an application for administrative license, the applicants and the interested parties consider it is necessary to identify relevant matters，or there are witnesses to prove their hearing claims, identifiers and witnesses could be invited to participate in the hearing. Relevant supporting materials shall be submitted to the administrative organ for the chairperson of the hearing to examine.
Article 13 Under any of the following circumstances, a chairperson of the hearing shall voluntarily withdraw from holding a hearing, while the applicants or any interested parties are entitled to require the withdrawal of such a person from the hearing in oral or written form.
(1) He or she is one of the examining personnel of the case;
(2) He or she is the close relative of an applicant of the administrative license, an interested party, or the entrusted agent of the case;
(3) He or she is one of the personnel who have direct interests with the administrative licensing matter;
(4) He or she has some other relationship with the applicant or the interested party of the case，which may affect the impartial hearing of the case.
The provisions of the preceding paragraph are applicable to the hearing officers, the notetakers, and the identifiers.
The withdrawal of the chairperson from the hearing shall be decided by the director of the administrative organ. The withdrawal of the notetaker and the identifiers shall be decided by the chairperson of the hearing.
Article 14 The administrative organ shall send the "administrative license hearing notice" to the participants of the hearing 7 days before it is held, and shall announce it to the public if necessary;
"Administrative license hearing notice" should include:
(1) The matters under administrative license of the hearing;
(2) The main content of administrative license decisions;
(3) The time and place of the hearing to be held;
(4) The name and title of the chairperson of the hearing;
(5) Other matters that should be made clear.
Article 15 The public hearing shall be conducted in accordance with the following procedure:
(1) The chairperson of the hearing should announce the commencement of the hearing, introduce the participants of the hearing and the Administrative License matters and check the identities of the participants of administrative license and the interested parties.
(2) The hearing officer reads the hearing disciplines;
(3) The persons who are responsible for the examination of an application for administrative license shall provide proofs, reasons and laws, regulations and rules for the examination opinions and present evidence;
(4) The applicants and the interested parties shall make their statements and provide related proofs, reasons and laws, regulations and rules and present evidence with the order arranged by the chairperson of the hearing;
(5) Where it is necessary for the identifier to read out the conclusion of verification in the course of defense and cross-examination, or for the witness to testify, the chairperson of the hearing should give permission first;
(6) After the defense and cross-examination, the persons who are responsible for the examination of an application for administrative license, the applicants and the interested parties should make their final statements with the order arranged by the chairperson of the hearing;
(7) The chairperson of the hearing announces the closure of the hearing.
The chairperson of the hearing should be neutral, objective and impartial in hearing the statements of the participants of the hearing.
If the procedures mentioned in the first paragraph of this article can’t be completed, the chairperson of the hearing should declare that the hearing will continue later.
Article 16 During the hearing, the chairperson of the hearing can question the participants of the hearing; with the permission given by the chairperson of the hearing, the persons who are responsible for the examination of an application for administrative license, the applicants and the parties can question each other and can also question the identifiers or witnesses.
Article 17 The activities of hearing shall be recorded in the transcripts of the hearing. The transcripts of the hearing shall explicitly record the following matters：
(1) The matters under administrative license of the hearing;
(2) The names and titles of the chairperson of the hearing， hearing officers，and the notetaker;
(3) The names, addresses and attendance of the participants of hearing;
(4) The time and place of the hearing held;
(5) Whether the hearing is held openly.If it is not,the reasons should be provided;
(6) The statements, facts, reasons, basis and evidence provided by the persons who are responsible for the examination of an application for administrative license, the applicants of the administrative license and the interested parties;
(7) The conclusion of verification of the identifier and the testimony of the witness;
(8) Defense and cross-examinations;
(9) The treatment of related matters by the chairperson of the hearing in the course of the hearing;
(10) Any other matters that the chairperson considers to be important.
The evidence materials of cross-examinations provided by the persons who are responsible for the examination of an application for administrative license, the applicants and the interested parties during the hearing should be included as the attachment of the transcripts of the hearing.
Article 18 The transcripts of the hearing to the participants shall bear the signatures or the seals of the participants of the hearing. Refusal of the participants of the hearing to sign or seal shall be recorded.
If the participants of the hearing consider that the transcripts of the hearing has omitted a part of their statement or is incorrect in some other respect, they shall have the right to request correction thereof. If no correction is made, the request for correction shall be noted in the written record.
Article 19 After the hearing, the chairperson of the hearing shall make a Report of the Administrative License according to the transcripts of the hearing, and send it together with the transcripts to the director of the administrative organ within 5 days.
The administrative organ shall make a decision on the administrative license according to the transcripts of the hearing.
Article 20 Under any of the following circumstances, the public hearing shall be postponed:
(1)The hearing is unable to be implemented due to force majeure;
(2) The applicant of the administrative license or the interested party applies for a phased extension with valid reasons;
(3)Other circumstances for the postponement of the hearing.
If the hearing is postponed, the administrative organ that organizes the hearing shall inform the participants of the hearing. Where the reason for the postponement of the hearing ceases to exist, the administrative organ that organizes the hearing shall resume the hearing within 3 days and inform the participants of the hearing.
Article 21 Under any of the following circumstances, the hearing shall be suspended:
(1) There appear new facts, reasons and evidence during the hearing which the chairperson considers should be verified;
(2) The requirement of the withdrawal of a hearing officer is made after the hearing has started;
(3) Other circumstances for the suspension of the hearing.
Where the reason for the suspension of the hearing ceases to exist, the administrative organ that organizes the hearing shall resume the hearing within 3 days and inform the participants of the hearing.
Article 22 Under any of the following circumstances, the hearing shall be terminated:
(1) The applicant of the administrative license or the interested party has withdrawn the application;
(2) The applicant of the administrative license or the interested party fails to be present at the hearing without valid reasons or withdraws from the hearing without the permission of the chairperson of the hearing.
(3) Other circumstances for the termination of the hearing
Article 23 For the administrative license matters listed in Item 3 of Article 3 of these measures，the applicant of the administrative license or the interested party failing to file the application of hearing within the prescribed period shall be considered to disclaim the hearing right. The administrative organ shall make a written record，and make a decision on the administrative license in accordance with the law upon comprehensive, objective and fair examination.
Article 24 Where an administrative organ and any of its functionaries violates any of the provisions of these measures or the Administrative License Law of The People's Republic of China under any of the following circumstances, the order of correction shall be given by the superior administrative organ or the supervisory organ; if the violations are serious, the direct liable persons in charge and other direct liable persons shall be given the administrative punishment in accordance with law:
(1) Failing to inform the applicants of the administrative license or the interested parties of the hearing rights and obligations;
(2) Failing to hold a hearing as required by the law;
(3) Failing to perform its hearing functions or failing to fulfill the hearing obligations in this aspect;
(4) Failing to make the administrative license decision on the basis of the transcripts of the hearing.
Article 25 If the applicants of the administrative license, the interested parties or any other person disrupt the hearing order or contravenes the proper conduct of the hearing, the chairperson shall be entitled to stop the behavior or order them to leave. If the violation is serious, the public security office shall, according to the relevant provisions of the public order management regulations, impose a penalty. If such actions constitute a crime, criminal penalty shall be imposed.
Article 26 The applicants of the administrative license and interested parties shall not pay for the expenses arising from the administrative organ's organization of the hearing. The essential fund for the administrative organ to implement an administrative license shall be listed in the budget of this administrative organ, which shall be ensured by the finance department of the same level.
Article 27 he time limit referred to in these measures shall be calculated according to the working days, not including the legal holidays and leaves.
Where an administrative organ needs to organize a hearing, the required time shall not be included in the time limit of implementation of the Administrative License. The time limit of implementation of the Administrative License should be calculated from the day after the date of termination of the hearing procedures.
Article 28 These measures shall become effective as of July 1, 2007.
我国现行刑诉法明确规定“证人证言必须在法庭上经过公诉人、被害人和被告人、辩护人双方讯问、质证，听取各方证人的证言并且经过查实以后，才能作为定案的根据”。这一规定表明，证人必须出庭作证。而承办案件的侦查人员能否以证人的身份出庭作证却存在较大的争议。我国的刑事司法实践中，侦查人员出庭作证亦是十分少见。笔者认为建立我国侦查人员出庭作证制度，势在必行。侦查人员出庭作证有助于加强控方证据的证明能力，抑制侦查人员非法取证的行为，为了维护程序正义，保证被告人的质询权，发现案件真实，侦查人员应当出庭作证。本文笔者拟就侦查人员出庭作证的几个问题进行探讨，并就构建我国的侦查人员作证制度提出设想，抛砖引玉，以期对我国的刑事理论和实践有所帮助。
一、我国侦查人员出庭作证的现状与成因
我国《刑事诉讼法》第48条关于证人的内涵和外延规定不甚明确，导致对侦查人员是否具备证人资格在理解上存在较大分歧。而《刑事诉讼法》第28条关于侦查人员回避的规定，更是成为侦查人员不出庭作证的法定理由。[1]虽然1999年最高人民检察院的《刑事诉讼规则》第343条明确规定：“公诉人对于搜查、勘验、检查等侦查活动中形成的笔录存在争议的，需要负责侦查的人员以及搜查、勘验、检察等活动的见证人出庭陈述有关情况的，可以建议合议庭通知其出庭”，最高人民法院关于执行《刑事诉讼法》若干问题的解释第138条也有类似规定。这些简单的规定既不能够涵盖侦查人员出庭作证制度的全部内容，也非强制性规定，往往只对本部门有效，所以这些司法解释对侦查机关基本上没有约束力，无法得到侦查机关的应有尊重。在实践中，侦查人员一般不出庭接受控辩双方的交叉询问，即使偶有控辩双方就书证、物证等证据材料的证据能力产生争议，侦查部门也往往是以盖有单位公章而无办案人员签名的一纸情况说明书或证明书予以应付来回避出庭，法官们也往往顺水推舟，以“上述事实，有被告人供述、证人证言以及某某机关关于被告人的证明材料等证据证实”而作出判决结论[2]。因此，在司法实践中，侦查人员出庭作证的情况非常少见，以致侦查人员不作证已经成为“习惯”。
对于我国侦查人员不出庭作证，不仅有理论层面的原因，也有实践上的障碍。
一是思想观念上，侦查人员代表国家行使侦查权，有权询问证人、讯问犯罪嫌疑人。证人首先向警察作证，然后才向检察官和法官作证。侦查人员出庭作证，无异于自降身份，由国家权力执行者降为普通的诉讼参与人。我国官本位的思想十分浓厚，让侦查人员从国家权力的行使者，转变为另一国家权力之下的证人，认为是降低了侦查人员的身份并且还要接律师的质询，这让侦查人员在心理上难以接受。在他们的思想观念里自己从来都是讯问或询问的主角与发动者，成为被质询的对象“会有损警察的形象和不利于以后侦查工作的开展。”[3]
二是现行庭审方式导致侦查人员不出庭作证。从我国的审判实践看，法官仍然以书面审为主，在多数情况下，法庭认可讯问笔录的效力，证人普遍不出庭作证，侦查人员更少出庭作证，法庭的对抗性不强。另外，为提高诉讼效率，应付“诉讼爆炸”，法官一般不要求侦查人员出庭作证。检察官也不希望侦查人员出庭作证，以免在律师的质询中暴露出取证中的不足，影响诉讼的顺利推进。由于检察官在诉讼中一身二任：既是国家公诉人，又是法律监督者，如果检察官不赞同警察出庭作证，那么，律师申请侦查人员出庭作证的请求就很难得到法庭的赞同。[4]基于以上原因，在现行的庭审模式下，侦查人员很少出庭作证。
三是利益上的原因导致侦查人员不愿出庭作证。在刑事诉讼中，不同的诉讼参与者有不同的诉讼利益，公安机关追求的诉讼利益是破案与抓获犯罪嫌疑人。只要侦破了案件，抓获了犯罪嫌疑人，案件顺利地移送起诉，公安机关的诉讼利益就已实现。相反，侦查人员出庭作证不仅不能给公安机关带来直接的诉讼利益，反而会增加其工作量，影响其他工作的完成。侦查人员出庭作证容易“暴露秘密侦查手段”，“通过技侦等秘密侦查手段获取的证据将面临被告及其律师的质疑和质问”，给侦查工作带来被动出庭作证对侦查人员而言是额外负担，不仅侦查人员个人不愿意，单位领导也不愿意。在警力紧张的情况下，侦查人员出庭作证，必将影响单位的正常工作。
二、我国侦查人员出庭作证的价值
一是侦查人员出庭作证是贯彻直接和言词原则的重要措施。
直接和言词原则是我国庭审的基本原则之一。直接原则强调法官必须直接听取当事人和其他诉讼参与人对案件的描述和辩论，以便形成正确的判决。而当事人和其他诉讼参与人必须亲自出庭，直接陈述对某一事实的体验结果。[5]言词原则更要求证人必须以口头形式表述案发经过，而公安机关收集的证据均为书面证据，如果侦查人员不出庭作证，就无法为当事人提供质证的程序保障，也不利于维护当事人的合法权益。
二是侦查人员出庭作证可以使侦查真实接近案件真实。
如果侦查人员不出庭作证，法官不能接触原始证据，而直接引用传闻证据，调查则较易依赖于薄弱证据之倾向，则可能导致案件的真实性被扭曲。侦查人员不出庭作证，法庭只能依据公诉方提供的书面证词审判。书面证词的最大弊端是它的静态性，被告人及其律师无法对其质询。尽管法律规定，制作笔录要遵守一定的规范，以保证书面证言的客观性，但书面证言的制作无疑渗透了侦查人员的主观意志。如何询问证人，询问哪些内容，提取何种物品，将哪些内容记载在笔录中，侦查人员的个人认识起决定性作用。侦查人员出庭作证，向法庭陈述制作笔录的具体过程，容易发现案件真实。
三是侦查人员出庭作证有利于提高证人出庭作证率。[6]我国现行刑诉法明确规定了证人出庭作证的制度，但长期以来，我国证人出庭率比较低，在很大程度上不利于贯彻落实新的庭审方式。如果侦查人员能够出庭作证，无疑会对证人起到表率作用，从而带动证人出庭作证，提高证人出庭率。
三、构建我国侦查人员出庭作证制度
我国侦查人员出庭作证尽管存在诸多障碍，但侦查人员出庭作证已是大势所趋，侦查人员出庭作证有其诉讼价值，我们可以借鉴国外先进经验，结合我国国情，构建我国侦查人员出庭作证制度。
一是转变思想观念。
对于公安机关来说必须树立以公诉为中心的工作理念，自觉接受检察院的合理指导和监督，为公诉做好一切必要的协助工作，克服以往司法实践中那种自扫门前雪的现象，只要侦查终结案卷一移送就完事。另外，要让侦查人员认识到出庭作证是侦查人员身为执法人员的应有之义，转变侦查人员特权观念。
二是改变现行庭审方式。
如前所述，我国现行庭审仍以书面审理为主，法官、检察官只对侦查机关的书面材料进行审查并予以采信，而一般不要求承办案件的侦查人员出庭作证。我们应摒弃司法机关怕麻烦的思想。法官、检察官应当改变对侦查人员过分信任的态度，而应本着“对事实负责，对法律负责，对当事人负责”的态度，避免造成冤假错案。
三是完善我国相关立法。
修改《刑事诉讼法》关于侦查人员出庭作证资格的审查，明确规定在哪些情况下侦查人员应出庭作证以及侦查人员出庭作证的范围。基于诉讼效率与保护侦查人员切身利益的考虑，法律还应当规定侦查人员出庭作证的一些例外情况。
四是建立侦查人员出庭作证的保障措施。
由于受现实条件的限制，在我国的警力严重不足的情况下，如果不设定保障措施，侦查人员出庭作证率得不到保证。为此，公、检、法在目前警力不足的情况下，要沟通好，可以建立相关的制度，如果某些案件需要侦查人员出庭作证，侦查人员所在单位要给予合理安排。另外，还应确立证人保护、作证补偿、法院强制侦查人员出庭作证等制度。
五是对我国现有的诉讼制度进行改革。
借鉴西方发达国家的一些先进经验，赋予检察机关对侦查人员侦查活动的指挥权，参与权，指导权，实行检警紧密化，强化检方对警方的同步指导与同步监督。同时赋予法院对侦查活动的司法审查权，以逐渐实现从“诉讼阶段论”向“审判中心论”转变，确保审判机关独立审判的功能，[7]确立审判机关的权威地位，从而使侦查人员出庭有了坚强的理论基础。
