marketing strict internal cost control, business and innovation performance. --Increasing electricity access, price increase, electricity supply is guaranteed. In 2012, the company with coal inventory, get rewards of Jiangsu provincial government power to 266 million kWh. Through the \bilateral trade, access to electricity 1.695 billion kWh, seeking removal compensation when the power 50 million-kilowatt, 116% market share in Jiangsu Province ranked first in the same capacity, the same type units. Company closely tracked coal linkage policies on July 1 and August 20 respectively increase prices 2.08 minutes and 2.5 points, profitability increased significantly. 公... Job grading, remuneration of labour agreements into long-term contract workers compensation system, stimulating the enthusiasm of the staff. --Further strengthening of human resources management. Full implementation of the performance appraisal regulations, incentive effect. Complete the reserve cadre evaluation and selection, produced 10 primary reserve cadres and 11 secondary reserve cadres. Implementation of operation staff induction gang system, 14 staff posts be promoted. Strengthening the cultivation of professional technical leaders, selected coverage 9 13 factory-level professional and technical leaders. To enhance staff skills training, 8 staff technicians. Labor contract law compliance, contracts of up to 100%. --Star team-building to advance further. Establish a \ng system implementation, and promoting the whole\ding goals, strengthen group management. Team building into a performance review, promoting the construction of the star team depth. This year, respectively, 1 track, 4 team four star rated five-star by Datang and the team. Four, insists on \construction of\ous development, really good job of party construction and the independent Commission against corruption, strengthening the humanistic care and psychological counseling, the enterprise culture construction to a new level. --Building of enterprise culture is fruitful. Companies adhere to the Shenhua lead of corporate culture, culture of responsibility at the core, to safety culture, a culture of learning, ethical culture, cost culture culture system-assisted, through various cultural integration, has boosted business centre, this year has won the \nese cultural management advanced unit\he building of enterprise culture of reform and opening up 30\The liability of the company culture: solving management problems of corporate culture project was awarded the CEC national electric power enterprise culture achievement award of excellence. The accident early warning and prevention system was rated as China's power of innovation management, innovation management of electric power enterprise in Jiangsu Province. --Party and the independent Commission against corruption continues to strengthen. Was carried out to \殊原因或特殊情况的存在。事实上，对于通过自由心证得出的结论，法官自己心里也往往不能十分确信。因此，自由心证必须从不同的基础事实出发反复进行多次推理判断，以使结论尽可能符合客观真实。需要注意的是，自由心证所依据的不仅仅是证据和事实，而是法官以自身的经验、知识为基础对案件的证据、事实所作出的一个综合判断，正如程春华教授所定义的：“自由心证是主要依靠法官的主观意识与经验知识来对事实‘碎片’进行必要的挑选与组合以最终确定民事纠纷事实的过程”。⑤法官所掌握的案件背景资料、当事人一贯的信誉、知识、修养甚至极为细小的一些行为举止等这些事实“碎片”都会在不知不觉中对法官产生或强或弱的影响，法官应尽可能时刻保持中立的立场，谨慎而周全地分析所有对自己可能产生影响的事实“碎片”，从而保证判断的尽可能准确。
法院审判活动中最为重要而又最容易武断的部分是对事实和法律的认识判断过程，但这一过程并不在传统的公开审判制度所规定的“公开”范围之内。⑥而现代自由心证制度正是强调法官必须公开自己对事实的判断并表明自己的法律见解，因此各国民事诉讼法均规定了判决理由说明制度，即心证公开，以保证裁判的客观性。可见，心证公开是现代自由心证制度的必然要求。但是，在我国司法实践中，裁判文书对证据采纳理由的阐述随意性比较大，而且通常只针对证据本身的采纳及证据之间是否形成证据链条等问题进行阐述，较少涉及逻辑推理或日常生活常理的运用。前者虽然也可视为广义的心证公开，但毕竟后者才真正体现了自由心证的核心内容。因此，司法实践中对自由心证的尝试可以“心证公开”为切入点，鼓励法官在裁判文书中更多体现以逻辑推理和日常生活常理为依据进行证据判断的内容，以使当事人对法官认定事实证据的思维过程有基本了解，同时也能迫使法官在认定事实时尽到应有的注意，真正达到心证公开的宗旨。
总之，自由心证的司法实践也许将是曲折而充满争议的，但随着法官素质的提高、法官审判透明度的提升、审判监督制度的完善，自由心证必将得到科学合理的应用和发展。
——————
注 释：
①何家弘：《证据学论坛(第7卷)》，中国检察出版社2004年版，第367页。 ②徐静村：《刑事诉讼法学（第三版）（上）》，法律出版社2004年版，第144页。
③最高人民法院民事审判第一庭：《民事诉讼证据司法解释的理解与适用》，中国法制出版社2002年版，第381页。
④朱金花：《构建我国自由心证制度之分析》，载《中国商界》2009年第6期。
⑤程春华：《论法官的自由心证与法官对证据自由裁量—以民事诉讼为考察范围》，载http://www chinalawedu.com/ new/21601_21626/2009_9_21_ji.shtml，最后访问于2010年5月6日。
⑥李祖军：《自由心证与法官依法独立判断》，载《现代法学》2007年第10期。
作者单位：宁波市中级法院 宁波市北仑区法院
ecurity, profit, maintain stability and promote harmonious development\content of the %uarantees\ce activities and \party spirit, to conduct, for example\party and further improvement of the level of work. Staff participating in the honest and clean culture construction seminars, staff's sense of probity and enhanced. Founded by honest inspectors team composed of 12 employees to broaden the channels of supervision. Adhere to establish \ship activities, staff satisfaction rate of 98% to the team. --Group work dynamic. Promoting the openness of factory Affairs, proposal for a love letter box, to the vital interests of the staff Trade Union delegation leader meeting of the 26 system to discuss and safeguard their democratic rights. Improve the organizational structure of the mission, the work of strengthening. Organize maintenance labor emulation and \Cup\on, enhance the skills of staff. Organized a variety of cultural activities, physical and mental health care staff, to create a harmonious atmosphere. During the Wenchuan earthquake, donated all the company employees, to love, to support the disaster areas. This year, the company has won the \n be controlled, money should not be wasted \osophy, management analysis, to improve management quality, improve cost control capacity and market competitiveness. Innovation of science and technology--science and technology innovation is to play the role of science and technology as the primary productive force, active use of new technologies, new materials, new processes, new equipment, increase investment in science and technology, strengthening scientific and technological training, speeding up transforming scientific and technological achievements, forming a number of proprietary technology, enhancing core competitivness. Resource-saving-the-resources saving enterprise was to reduce coal consumption, water consumption, electricity at the core, enhance the operation of lean management to realize low consumption, high efficiency, reduce production costs. Second is to strengthen the business, financial, material, information and the optimization of organization and management, saving the internal transaction costs. Harmonious development of harmonious development--is to construct a \onment for development. \curity firm and internal management of the internal management measures are effective, harmonious\\prise coordinating development of homeopathy, well, get along with the neighbors better.\prises building intrinsic safety power company goals are: unplanned outage 0 times. Class of disorders 0, 0 is equivalent forced outage rate. No personal injury accident, material and equipment accidents do not occur, no fire, no environmental pollution accident. Enterprise integrated to achieve zero cases of violation, zero accidents, zero. Quality goal is: when generating capacity ≥ 7.5marketing strict internal cost control, business and innovation performance. --Increasing electricity access, price increase, electricity supply is guaranteed. In 2012, the company with coal inventory, get rewards of Jiangsu provincial government power to 266 million kWh. Through the \ and bilateral trade, access to electricity 1.695 billion kWh, seeking removal compensation when the power 50 million-kilowatt, 116% market share in Jiangsu Province ranked first in the same capacity, the same type units. Company closely tracked coal linkage policies on July 1 and August 20 respectively increase prices 2.08 minutes and 2.5 points, profitability increased significantly. 公... Job grading, remuneration of labour agreements into long-term contract workers compensation system, stimulating the enthusiasm of the staff. --Further strengthening of human resources management. Full implementation of the performance appraisal regulations, incentive effect. Complete the reserve cadre evaluation and selection, produced 10 primary reserve cadres and 11 secondary reserve cadres. Implementation of operation staff induction gang system, 14 staff posts be promoted. Strengthening the cultivation of professional technical leaders, selected coverage 9 13 factory-level professional and technical leaders. To enhance staff skills training, 8 staff technicians. Labor contract law compliance, contracts of up to 100%. --Star team-building to advance further. Establish a \ng system implementation, and promoting the whole\-building goals, strengthen group management. Team building into a performance review, promoting the construction of the star team depth. This year, respectively, 1 track, 4 team four star rated five-star by Datang and the team. Four, insists on \construction of\ous development, really good job of party construction and the independent Commission against corruption, strengthening the humanistic care and psychological counseling, the enterprise culture construction to a new level. --Building of enterprise culture is fruitful. Companies adhere to the Shenhua lead of corporate culture, culture of responsibility at the core, to safety culture, a culture of learning, ethical culture, cost culture culture system-assisted, through various cultural integration, has boosted business centre, this year has won the \nese cultural management advanced unit\he building of enterprise culture of reform and opening up 30\bility of the company culture: solving management problems of corporate culture project was awarded the CEC national electric power enterprise culture achievement award of excellence. The accident early warning and prevention system was rated as China's power of innovation management, innovation management of electric power enterprise in Jiangsu Province. --Party and the independent Commission against corruption continues to strengthen. Was carried out to \
关于台州法院行政审判中司法建议工作的调研报告
文/张 敏 於艳华 蔡 超
司法建议是指法院在审判活动中，发现行政机关、企事业单位、个人等存在
亟须改进的问题时，依法提出的建议。司法建议作为一项有中国特色的司法制度，有利于化解社会矛盾，提高社会管理水平，一直以来在实现司法的服务功能方面发挥着不可替代的作用。2007年3月1日，最高人民法院下发了法发[2007]10号《关于进一步加强司法建议工作为构建社会主义和谐社会提供司法服务的通知》，明确要求各级人民法院将司法建议制度作为一项重要工作来抓。 行政审判中的司法建议，由于行政审判固有的司法权监督行政权的基本属性，其发挥空间更加广阔，不仅可以监督和促进行政机关依法行政，而且在保障社会稳定、促进官民和谐等方面也有一定价值。为准确了解、掌握台州法院行政审判中司法建议工作情况，规范和加强司法建议工作，台州中院行政庭采取数据分析、书面总结、座谈讨论等方法，对该市行政审判司法建议工作进行了调研分析。
一、全市法院行政审判中司法建议工作基本情况 （一）数量
2007年至今年上半年，市中院和九个基层法院共发送司法建议58件，各年度发送的建议数总体呈上升趋势，其中2009年31件，呈现激增的态势。在各法院间，由于对司法建议重视程度的差异，呈现出发展不平衡的形态。如路桥法院发送建议18件（其中13件系针对同一行政机关发出，内容类同）,天台法院发送建议16件，共占总量的50％以上；而其他法院发送的司法建议数量较少。
中 椒 黄 路 临 温 玉 天 仙 三 总 院 江 岩 桥 海 岭 环 台 居 门 数 2007年 1 1 3 1 3 9 2008年 1 2 1 3 1 8 2009年 1 2 2 13 3 2 8 31 2010年 4 2 2 2 10 上半年 合计 5 3 6 18 4 2 3 16 1 58 （二）涉及行政管理领域
从司法建议涉及的行政管理领域来看，分别为土地20件、公安9件、环保5件、城建5件，计生4件，其他15件。反映出这些行政管理领域是矛盾相对
ecurity, profit, maintain stability and promote harmonious development\content of the %uarantees\ce activities and \party spirit, to conduct, for example\party and further improvement of the level of work. Staff participating in the honest and clean culture construction seminars, staff's sense of probity and enhanced. Founded by honest inspectors team composed of 12 employees to broaden the channels of supervision. Adhere to establish \ship activities, staff satisfaction rate of 98% to the team. --Group work dynamic. Promoting the openness of factory Affairs, proposal for a love letter box, to the vital interests of the staff Trade Union delegation leader meeting of the 26 system to discuss and safeguard their democratic rights. Improve the organizational structure of the mission, the work of strengthening. Organize maintenance labor emulation and \Cup\on, enhance the skills of staff. Organized a variety of cultural activities, physical and mental health care staff, to create a harmonious atmosphere. During the Wenchuan earthquake, donated all the company employees, to love, to support the disaster areas. This year, the company has won the \n be controlled, money should not be wasted \osophy, management analysis, to improve management quality, improve cost control capacity and market competitiveness. Innovation of science and technology--science and technology innovation is to play the role of science and technology as the primary productive force, active use of new technologies, new materials, new processes, new equipment, increase investment in science and technology, strengthening scientific and technological training, speeding up transforming scientific and technological achievements, forming a number of proprietary technology, enhancing core competitiveness. Resource-saving-the-resources saving enterprise was to reduce coal consumption, water consumption, electricity at the core, enhance the operation of lean management to realize low consumption, high efficiency, reduce production costs. Second is to strengthen the business, financial, material, information and the optimization of organization and management, saving the internal transaction costs. Harmonious development of harmonious development--is to construct a \onment for development. \curity firm and internal management of the internal management measures are effective, harmonious\\prise coordinating development of homeopathy, well, get along with the neighbors better.\prises building intrinsic safety power company goals are: unplanned outage 0 times. Class of disorders 0, 0 is quivalent forced outage rate. No personal injury accident, material and equipment accidents do not occur, no fire, no environmental pollution accident. Enterprise integrated to achieve zero cases of violation, zero accidents, zero. Quality goal is: when generating capacity ≥ 7.5 marketing strict internal cost control, business and innovation performance. --Increasing electricity access, price increase, electricity supply is guaranteed. In 2012, the company with coal inventory, get rewards of Jiangsu provincial government power to 266 million kWh. Through the \bilateral trade, access to electricity 1.695 billion kWh, seeking removal compensation when the power 50 million-kilowatt, 116% market share in Jiangsu Province ranked first in the same capacity, the same type units. Company closely tracked coal linkage policies on July 1 and August 20 respectively increase prices 2.08 minutes and 2.5 points, profitability increased significantly. 公... Job grading, remuneration of labour agreements into long-term contract workers compensation system, stimulating the enthusiasm of the staff. --Further strengthening of human resources management. Full implementation of the performance appraisal regulations, incentive effect. Complete the reserve cadre evaluation and selection, produced 10 primary reserve cadres and 11 secondary reserve cadres. Implementation of operation staff induction gang system, 14 staff posts be promoted. Strengthening the cultivation of professional technical leaders, selected coverage 9 13 factory-level professional and technical leaders. To enhance staff skills training, 8 staff technicians. Labor contract law compliance, contracts of up to 100%. --Star team-building to advance further. Establish a \ng system implementation, and promoting the whole\ding goals, strengthen group management. Team building into a performance review, promoting the construction of the star team depth. This year, respectively, 1 track, 4 team four star rated five-star by Datang and the team. Four, insists on \construction of\ous development, really good job of party construction and the independent Commission against corruption, strengthening the humanistic care and psychological counseling, the enterprise culture construction to a new level. --Building of enterprise culture is fruitful. Companies adhere to the Shenhua lead of corporate culture, culture of responsibility at the core, to safety culture, a culture of learning, ethical culture, cost culture culture system-assisted, through various cultural integration, has boosted business centre, this year has won the \nese cultural management advanced unit\he building of enterprise culture of reform and opening up 30\The liability of the company culture: solving management problems of corporate culture project was awarded the CEC national electric power enterprise culture achievement award of excellence. The accident early warning and prevention system was rated as China's power of innovation management, innovation management of electric power enterprise in Jiangsu Province. --Party and the independent Commission against corruption continues to strengthen. Was carried out to \集中、纠纷高发的领域，也是行政管理存在问题和瑕疵相对较多的领域。
（三）发送司法建议的主要情形
在调研走访过程中，受访的行政庭法官在谈及何种情形下应发送司法建议时，一致认为应对审判实践中发现的行政机关存在的普遍性、典型性问题发送司法建议。从发送的司法建议来看，基本上都是在审理具体案件中，认为该案中行政机关存在的问题具有普遍性或倾向性，应引起行政机关重视并加以改进的，就个案提出建议。分析58份司法建议，主要有以下几种情形：
（1）被诉具体行政行为违法，但不宜判决撤销或确认违法，或案件协调解决的，在结案后向行政机关提出建议。如有2件向公安机关发送的司法建议，原因是公安机关超过法定期限作出治安行政处罚，但考虑到相对人的行为已构成违法，判决驳回其诉讼请求对其实体权利没有影响，法院判决驳回了原告的诉讼请求。在判决后，对公安机关较普遍存在的超过法定期限作出治安行政处罚这一问题提出司法建议。
（2）案件审结后，法院认为仍存在不稳定隐患或问题需引起重视的，向行政机关提出司法建议。如椒江法院在审理郭志红等124名原告要求撤销台州市建设规划局规划许可一案中，发现与该涉案地块相邻的23号楼业主反应强烈，认为该地块的规划条件必将严重影响23号楼业主的通风、采光权利。该院认为此案虽结，但事未了，故建议建设规划局在作出行政行为时妥善处理各方利益，听取利害关系各方的合理主张和诉求，力促社会稳定，百姓安宁。
（3）在案件审理过程中，发现被诉具体行政行为确有错误的，建议行政机关自行纠正。如天台法院在审理原告俞志明等要求确认被告天台县建设规划局颁发给第三人俞挺的房屋产权证行政行为违法一案中，根据鉴定机构作出的鉴定意见，查明第三人申请变更产权登记的主要证据虚假。该院认为被告虽尽到审查义务，但发证行为确有错误，遂建议被告自行纠正。天台法院发送的16份司法建议中，绝大部分属于这种情形。
（4）根据原告与第三人达成的和解协议，建议被诉行政机关变更具体行政行为。如天台法院在审理原告许昌华要求撤销天台县建设规划局颁发给第三人许世汤建设规划许可证一案中，原告与第三人在诉讼过程中达成和解协议，原告申请撤诉。为使纠纷得到彻底解决，法院书面建议天台县建设规划局在不违反规划的原则下，按照原告与第三人达成的和解协议内容，变更颁发给第三人的乡村建设规划许可证。
（5）在审查非诉行政执行案件中，发现行政机关在行政执法中普遍存在的实体性、程序性问题，发出司法建议。如黄岩法院对该院审查的一批强制执行征收社会抚养费决定的案件，认为其中存在认定证据相互矛盾、取证程序违法、案号登记混乱、送达不符合规定等问题，向该区人口和计划生育局提出改进建议。此类司法建议约占15％。
（6）案件审理过程中发现的其他问题，需有关部门处理的。如针对代理律师在庭审中发表煽动性言论，致诉讼活动无法正常进行的，建议相关司法部门依法作出处理。该类司法建议数量较少，约占所有司法建议的5％。
在上述几种情形中，笔者认为，第（5）和第（6）种情形下发送的司法建议并非针对法院在行使行政审判权时发现的行政机关执法行为中存在的问题，或者
ecurity, profit, maintain stability and promote harmonious development\content of the %uarantees\ce activities and \party spirit, to conduct, for example\party and further improvement of the level of work. Staff participating in the honest and clean culture construction seminars, staff's sense of probity and enhanced. Founded by honest inspectors team composed of 12 employees to broaden the channels of supervision. Adhere to establish \ship activities, staff satisfaction rate of 98% to the team. --Group work dynamic. Promoting the openness of factory Affairs, proposal for a love letter box, to the vital interests of the staff Trade Union delegation leader meeting of the 26 system to discuss and safeguard their democratic rights. Improve the organizational structure of the mission, the work of strengthening. Organize maintenance labor emulation and \Cup\on, enhance the skills of staff. Organized a variety of cultural activities, physical and mental health care staff, to create a harmonious atmosphere. During the Wenchuan earthquake, donated all the company employees, to love, to support the disaster areas. This year, the company has won the \n be controlled, money should not be wasted \osophy, management analysis, to improve management quality, improve cost control capacity and market competitiveness. Innovation of science and technology--science and technology innovation is to play the role of science and technology as the primary productive force, active use of new technologies, new materials, new processes, new equipment, increase investment in science and technology, strengthening scientific and technological training, speeding up transforming scientific and technological achievements, forming a number of proprietary technology, enhancing core competitivness. Resource-saving-the-resources saving enterprise was to reduce coal consumption, water consumption, electricity at the core, enhance the operation of lean management to realize low consumption, high efficiency, reduce production costs. Second is to strengthen the business, financial, material, information and the optimization of organization and management, saving the internal transaction costs. Harmonious development of harmonious development--is to construct a \onment for development. \curity firm and internal management of the internal management measures are effective, harmonious\\prise coordinating development of homeopathy, well, get along with the neighbors better.\prises building intrinsic safety power company goals are: unplanned outage 0 times. Class of disorders 0, 0 is equivalent forced outage rate. No personal injury accident, material and equipment accidents do not occur, no fire, no environmental pollution accident. Enterprise integrated to achieve zero cases of violation, zero accidents, zero. Quality goal is: when generating capacity ≥ 7.5marketing strict internal cost control, business and innovation performance. --Increasing electricity access, price increase, electricity supply is guaranteed. In 2012, the company with coal inventory, get rewards of Jiangsu provincial government power to 266 million kWh. Through the \ and bilateral trade, access to electricity 1.695 billion kWh, seeking removal compensation when the power 50 million-kilowatt, 116% market share in Jiangsu Province ranked first in the same capacity, the same type units. Company closely tracked coal linkage policies on July 1 and August 20 respectively increase prices 2.08 minutes and 2.5 points, profitability increased significantly. 公... Job grading, remuneration of labour agreements into long-term contract workers compensation system, stimulating the enthusiasm of the staff. --Further strengthening of human resources management. Full implementation of the performance appraisal regulations, incentive effect. Complete the reserve cadre evaluation and selection, produced 10 primary reserve cadres and 11 secondary reserve cadres. Implementation of operation staff induction gang system, 14 staff posts be promoted. Strengthening the cultivation of professional technical leaders, selected coverage 9 13 factory-level professional and technical leaders. To enhance staff skills training, 8 staff technicians. Labor contract law compliance, contracts of up to 100%. --Star team-building to advance further. Establish a \ng system implementation, and promoting the whole\-building goals, strengthen group management. Team building into a performance review, promoting the construction of the star team depth. This year, respectively, 1 track, 4 team four star rated five-star by Datang and the team. Four, insists on \construction of\ous development, really good job of party construction and the independent Commission against corruption, strengthening the humanistic care and psychological counseling, the enterprise culture construction to a new level. --Building of enterprise culture is fruitful. Companies adhere to the Shenhua lead of corporate culture, culture of responsibility at the core, to safety culture, a culture of learning, ethical culture, cost culture culture system-assisted, through various cultural integration, has boosted business centre, this year has won the \nese cultural management advanced unit\he building of enterprise culture of reform and opening up 30\bility of the company culture: solving management problems of corporate culture project was awarded the CEC national electric power enterprise culture achievement award of excellence. The accident early warning and prevention system was rated as China's power of innovation management, innovation management of electric power enterprise in Jiangsu Province. --Party and the independent Commission against corruption continues to strengthen. Was carried out to \虽与案件审理有关但不属于案件审理对象的一些问题，因此并不属于狭义的行政审判中的司法建议，下文中不再分析。在前四种情形中，有一个比较鲜明的现象是，市中院及除天台法院外的八个基层法院发送的司法建议基本上都是第（1）、（2）种情形，而天台法院所发的16件司法建议中除2件属于上述第（5）、第（6）种情形外，其余均属于第（3）和第（4）的情形。且从调研情况看，两类司法建议的反馈和落实情况、法院及行政机关对司法建议的态度等也存在较大的差异。故下文笔者将就司法建议上述两种主要类型的特点、实践情况等分别展开论述。为便于论述，下文中笔者将天台法院的行政审判司法建议模式称为“天台模式”，而将台州其他法院的司法建议模式称为“一般模式”。
二、两大模式的主要特点和实践情况 （一）一般模式。 1.性质和特点。在一般模式中，上文所述的第（1）种情形所占比例超过80％，即在被诉具体行政行为违法或明显不当，但不宜判决撤销或确认违法的，或经协调当事人和解的，在结案后就具体行政行为存在的问题发送司法建议。笔者认为，此类司法建议的性质更倾向于是裁判的一种补充或辅助。在行政诉讼中，裁判往往不能穷尽或不能完全表达行政法官对案件的认知。究其原因，在于我国行政诉讼承担的功能较为多元。在具体个案的解决过程中，行政诉讼法官不仅要去关注法律条文的规定，还需要考虑纠纷的实质解决，考虑法律正义之外的因素，考虑案件判决的可接受性等等。受这种司法政策的影响，行政判决就可能与单纯考虑法律效果得出的结果产生偏差，或者不能完全阐述法官严格遵守法律文本得出的审理意见。在这种情形下，司法建议应运而生。因为它是发送行政机关一方的，并不损及行政判决的权威，而法官的审判意见在行政判决书中不能穷尽或无法阐述的，又可以在司法建议中得以发表。故在这种情形下，司法建议这种柔性的调节方式就成为了刚性的行政判决的完美补充。
2.实践情况。司法建议在实践中首先遭遇的是理论困境。在调研中，法院人员认为司法建议发展的最大障碍是司法建议的效力问题。《中华人民共和国行政诉讼法》第65条规定，“行政机关拒绝履行判决、裁定的，第一审人民法院可以采取以下措施：……（三）向该行政机关的上一级行政机关或者监察、人事机关提出司法建议。接受司法建议的机关，根据有关规定进行处理，并将处理情况告知人民法院……；”。而实践中的司法建议大多不属于该条规定的情形，即已扩大了行政诉讼司法建议的应用范围，而缺乏法律的授权。同时，《行政诉讼法》第65条亦没有规定行政机关“应当”将处理情况告知法院。最高院下发的加强司法建议工作的《通知》，虽从规范司法建议的程序、内容、落实等方面提出了要求，但依然没有解决司法建议的法律依据问题。实践中，行政机关对司法建议的态度也只是“看看而已”，并不认为司法建议具有强制力。
司法建议不具有强制力这样的理论困境带来的现实困境是：
（1）司法建议反馈率较低。2007年至2010年上半年，全市法院除天台法院外共发出司法建议30件（因路桥法院发送的13份司法建议系针对一个行政机关的同一问题发出，在此以1件计。），有书面反馈的6件，口头反馈3件，反馈率为30％。且司法建议反馈存在应付情况，如有的反馈未针对司法建议表明建议落实情况，或无任何实质性举措；有的反馈超出反馈期限作出，反映出行政机
ecurity, profit, maintain stability and promote harmonious development\content of the %uarantees\ce activities and \party spirit, to conduct, for example\party and further improvement of the level of work. Staff participating in the honest and clean culture construction seminars, staff's sense of probity and enhanced. Founded by honest inspectors team composed of 12 employees to broaden the channels of supervision. Adhere to establish \ship activities, staff satisfaction rate of 98% to the team. --Group work dynamic. Promoting the openness of factory Affairs, proposal for a love letter box, to the vital interests of the staff Trade Union delegation leader meeting of the 26 system to discuss and safeguard their democratic rights. Improve the organizational structure of the mission, the work of strengthening. Organize maintenance labor emulation and \Cup\on, enhance the skills of staff. Organized a variety of cultural activities, physical and mental health care staff, to create a harmonious atmosphere. During the Wenchuan earthquake, donated all the company employees, to love, to support the disaster areas. This year, the company has won the \n be controlled, money should not be wasted \osophy, management analysis, to improve management quality, improve cost control capacity and market competitiveness. Innovation of science and technology--science and technology innovation is to play the role of science and technology as the primary productive force, active use of new technologies, new materials, new processes, new equipment, increase investment in science and technology, strengthening scientific and technological training, speeding up transforming scientific and technological achievements, forming a number of proprietary technology, enhancing core competitiveness. Resource-saving-the-resources saving enterprise was to reduce coal consumption, water consumption, electricity at the core, enhance the operation of lean management to realize low consumption, high efficiency, reduce production costs. Second is to strengthen the business, financial, material, information and the optimization of organization and management, saving the internal transaction costs. Harmonious development of harmonious development--is to construct a \onment for development. \curity firm and internal management of the internal management measures are effective, harmonious\\prise coordinating development of homeopathy, well, get along with the neighbors better.\prises building intrinsic safety power company goals are: unplanned outage 0 times. Class of disorders 0, 0 is quivalent forced outage rate. No personal injury accident, material and equipment accidents do not occur, no fire, no environmental pollution accident. Enterprise integrated to achieve zero cases of violation, zero accidents, zero. Quality goal is: when generating capacity ≥ 7.5 marketing strict internal cost control, business and innovation performance. --Increasing electricity access, price increase, electricity supply is guaranteed. In 2012, the company with coal inventory, get rewards of Jiangsu provincial government power to 266 million kWh. Through the \bilateral trade, access to electricity 1.695 billion kWh, seeking removal compensation when the power 50 million-kilowatt, 116% market share in Jiangsu Province ranked first in the same capacity, the same type units. Company closely tracked coal linkage policies on July 1 and August 20 respectively increase prices 2.08 minutes and 2.5 points, profitability increased significantly. 公... Job grading, remuneration of labour agreements into long-term contract workers compensation system, stimulating the enthusiasm of the staff. --Further strengthening of human resources management. Full implementation of the performance appraisal regulations, incentive effect. Complete the reserve cadre evaluation and selection, produced 10 primary reserve cadres and 11 secondary reserve cadres. Implementation of operation staff induction gang system, 14 staff posts be promoted. Strengthening the cultivation of professional technical leaders, selected coverage 9 13 factory-level professional and technical leaders. To enhance staff skills training, 8 staff technicians. Labor contract law compliance, contracts of up to 100%. --Star team-building to advance further. Establish a \ng system implementation, and promoting the whole\ding goals, strengthen group management. Team building into a performance review, promoting the construction of the star team depth. This year, respectively, 1 track, 4 team four star rated five-star by Datang and the team. Four, insists on \construction of\ous development, really good job of party construction and the independent Commission against corruption, strengthening the humanistic care and psychological counseling, the enterprise culture construction to a new level. --Building of enterprise culture is fruitful. Companies adhere to the Shenhua lead of corporate culture, culture of responsibility at the core, to safety culture, a culture of learning, ethical culture, cost culture culture system-assisted, through various cultural integration, has boosted business centre, this year has won the \nese cultural management advanced unit\he building of enterprise culture of reform and opening up 30\The liability of the company culture: solving management problems of corporate culture project was awarded the CEC national electric power enterprise culture achievement award of excellence. The accident early warning and prevention system was rated as China's power of innovation management, innovation management of electric power enterprise in Jiangsu Province. --Party and the independent Commission against corruption continues to strengthen. Was carried out to \关并未及时对司法建议进行研究落实，反馈带有应付性质。
（2）法院对司法建议的态度并不积极。这一点从司法建议的发送数量就可充分说明。调研发现，主要原因是：①部分审判人员对发送司法建议不具有自信。司法建议要求法院人员在对行政机关存在问题进行深入剖析的基础上，有理有据地提出有针对性的意见和建议。这就要求法院人员应具有较深的行政法律造诣，并对行政执法工作有着较为深入、全面的认识。一些审判人员考虑到如果所提建议不当或不具有可行性，则有损法院的权威形象，因而不敢提出司法建议或尽量少提，在提出的建议中也尽量采取较宽泛、模糊的语句，避免提出非常明确、具体的意见、建议。这就导致司法建议往往指出问题多、提出建议少，大大削弱了司法建议本应有的“建议”功能，同时也间接导致行政机关对司法建议的认同度下降。②行政机关对司法建议并不欢迎。一些行政机关如公安机关对被发送司法建议情况进行考核，某单位被发送司法建议较多的要扣分。出于考核的原因，行政机关希望法院尽量少发或不发司法建议。笔者认为，考核只是行政机关不欢迎司法建议的一个原因之一，关键还在于行政机关对司法建议的认识存有偏差。大部分行政机关并没有认同司法建议的服务、促进功能，而是将其作为一种监督手段，作为法院来讲，首先考虑的是行政机关对行政诉讼的理解与支持，故在行政机关抵制司法建议的情况下逐渐放弃司法建议。③还有部分审判人员认为，司法建议本来作用轻微，如发送数量较多的话，行政机关见惯不怪，会更加不重视司法建议，因此应当少发司法建议。
总而言之，一般模式下的司法建议其存在虽极有必要，但其现实处境却是无奈而尴尬的。
（二）天台模式
在天台法院发送的16份司法建议中，有12件是在审理过程中，发现被诉具体行政行为确有错误或不当的，建议行政机关自行纠正或妥善作出处理；有2件是在审理过程中原告与第三人达成了和解协议，根据协议的相关内容，建议行政机关变更具体行政行为。从实践情况来看，该院发送的司法建议取得较好的效果。
1.法院发送司法建议较为主动。该院的司法建议主要是针对个案存在的问题，通过司法建议的形式与行政机关进行交流沟通，以使案件得到最佳的处理结果。与一般模式相比，其出发点在于案件的更好处理，故法院在发送该类司法建议时更具有主动性，态度更为积极。
2.司法建议反馈率较高。16份司法建议中，书面反馈的5件，口头反馈的8件，反馈率达到81.3％。究其原因，在于上述的12件司法建议都是在案件审理过程中发送的，且已明确指出具体行政行为存在错误，行政机关在收到司法建议后会很清楚地意识到，如果其对建议置之不理，那么，其被判决败诉的可能性几乎是百分之百。为避免败诉的结果，他们会主动对司法建议作出回应。并且，绝大部分行政机关对司法建议提出的问题也是认同的。
3.有力地促进了案件的协调。该院提出司法建议后，基本上所有受建议的行政机关均依据法院的司法建议自行纠正或改变了被诉具体行政行为，原告的诉求得到满足后申请撤诉。2007年至2009年，该院行政案件的协调撤诉率分别达到71%、75.5%、56.9%。
可见，该院发送的司法建议更侧重于服务行政审判工作更好地开展。就短期
ecurity, profit, maintain stability and promote harmonious development\content of the %uarantees\ce activities and \party spirit, to conduct, for example\party and further improvement of the level of work. Staff participating in the honest and clean culture construction seminars, staff's sense of probity and enhanced. Founded by honest inspectors team composed of 12 employees to broaden the channels of supervision. Adhere to establish \ship activities, staff satisfaction rate of 98% to the team. --Group work dynamic. Promoting the openness of factory Affairs, proposal for a love letter box, to the vital interests of the staff Trade Union delegation leader meeting of the 26 system to discuss and safeguard their democratic rights. Improve the organizational structure of the mission, the work of strengthening. Organize maintenance labor emulation and \Cup\on, enhance the skills of staff. Organized a variety of cultural activities, physical and mental health care staff, to create a harmonious atmosphere. During the Wenchuan earthquake, donated all the company employees, to love, to support the disaster areas. This year, the company has won the \n be controlled, money should not be wasted \osophy, management analysis, to improve management quality, improve cost control capacity and market competitiveness. Innovation of science and technology--science and technology innovation is to play the role of science and technology as the primary productive force, active use of new technologies, new materials, new processes, new equipment, increase investment in science and technology, strengthening scientific and technological training, speeding up transforming scientific and technological achievements, forming a number of proprietary technology, enhancing core competitivness. Resource-saving-the-resources saving enterprise was to reduce coal consumption, water consumption, electricity at the core, enhance the operation of lean management to realize low consumption, high efficiency, reduce production costs. Second is to strengthen the business, financial, material, information and the optimization of organization and management, saving the internal transaction costs. Harmonious development of harmonious development--is to construct a \onment for development. \curity firm and internal management of the internal management measures are effective, harmonious\\prise coordinating development of homeopathy, well, get along with the neighbors better.\prises building intrinsic safety power company goals are: unplanned outage 0 times. Class of disorders 0, 0 is equivalent forced outage rate. No personal injury accident, material and equipment accidents do not occur, no fire, no environmental pollution accident. Enterprise integrated to achieve zero cases of violation, zero accidents, zero. Quality goal is: when generating capacity ≥ 7.5