The French administrative and judicial system

for combating fraud and corruptionin local governments

法国地方政府打击欺诈和腐败行政司法体系

By François BADIE演讲者： François BADIE

Head of the French Central ServiceFor the Prevention of Corruption法国预防贪污腐败中心主任

China-Europe Public Administration Project II (CEPA II)中欧公共管理二期项目

June 2014

2014 年 6月

France / China中国和法国

Significant differences in terms of size and political, administrative and judicial systems

在政治、行政和司法体系上差别显著550 000 square kilometers vs. 9,67 million

967万平方公里 vs. 55万平方公里65, 8 millions inhabitants vs. 1,35 billion

13.5亿人 vs. 6580万人22 provinces, only 5 with more than 3 millions inhabitants

22个大区，人口超过 300万的只有 5 个100 subprovinces, among them 50 less than 500 000 inhabitants,

100个省， 50个省的人口少于 50 万36614 municipalities,

36614个市镇among them 32 000 with less than 2000 inhabitants

其中 32000个市镇人口少于 2000 only 60 urban units with more than 100 000 inhabitants

仅有 60多个市镇人口超过 10 万

But a similar willingness to prevent and combat

local government corruption不过，我们预防和打击地方政府腐败的意愿是一样的

• The French Institutional System 法国制度体系

• Structural separation of legislative and executive powers and judicial authorities• 司法权、行政权和执法权分属不同的政府部门

• According to article 15 of the 1789 French Declaration of Human and Citizen’s Rights : « Society has the right to ask any public official to account for its administration »

• 1789年法国《人权和公民权宣言》第 15条：“社会有权要求机关公务人员报告其工作。 ”

• The 1958 French Constitution sets forth the principle of autonomy of local bodies without preventing the central State to audit and control their use of public funds

• 1958年法国宪法明确规定地方机关享有自治权这一原则，但不禁止中央政府审计和控制其对公共资金的使用

• Citizens can exert an indirect control on the management of local bodies and use of public funds through their participation in local government election which can entail removal of unethical public authorities

• 公民可以通过参与地方政府选举、清除腐败官员来对地方政府的管理和公共资金的使用施加间接影响。

• Under conditions, citizens may refer to the administrative justice and ask for an irregular local decision to be set aside, if necessary by an interim order

• 某些条件下，公民可请求行政司法干涉，要求撤销当地的不当决策，必要时可使用暂时法令

• According to the Press Act of 29th July, 1881, both national an local media are entitled to expose local government corruption, subject to the control of the judge in case of excess (bad faith, false

information,slander, etc.) • 依据 1881 年 7 月 29日的《媒体法》，国家和地方媒体都有权利对地方政府的贪腐进行曝光，但过度行为（不诚实、

虚假信息、诽谤等等）应由法官予以裁决和控制

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The administrative checks 行政制约

A range of bottom-up administrative channels help monitor and check the behaviour of local officials

有一系列自下而上的行政渠道可帮助监督和制约地方官员的行为

Control as to legality performed by the prefect, who represents the Central State at the subregional level

地方行政长官（ Prefect）在次区层面代表中央政府，对合法性进行控制

Budgetary control, also exerted by the prefect预算控制也由地方行政长官完成

Accounting control, with the fundamental principle of segregation between the authorizing officer and the accounting officer

会计控制的基本原则是授权人员与会计人员的职权予以区隔Accounting officers are sworn State civil servants

会计人员为宣誓过的国家公务员

Real estate value control by a sworn State civil Servants由宣誓过的国家公务员对房地产价值进行控制

Ex post control of the use of public funds by local governments and other local bodies ensured by “Regional Audit Chambers” above 5 000 inhabitants and by Finance Minister local

services under 5000.针对地方政府和其他地方机构对公共资金的使用情况进行事后控制， 5000人口以下由“地区审计法院”

予以确保， 5000人口以下由金融部地方服务局确保。4

Those Chambers (22 until 2011, 17 since then) have three main missions : 这些审计法院（到 2011年时有 22个，自 2011年后又有 17个）有三个主要使命：

1/ Judging the public accountants’ accounts of local governments (regions, subregions, cities, towns) and all other public local bodies.

1.对公共会计师的地方政府（大区、次区、市、镇）和其他所有当地公共机构账目进行评判

2/ Auditing the management (and use of public funds) of these authorities and of the bodies under their authority or which receive public funds.

2.审计这些部门、其下属机构或领取公共资金的机构的管理情况（和公共资金使用情况）

3/ Evaluation of public policies at the local level 3.评估地方层面的公共政策

+ A priori/contemporary budgetary control of territorial authorities and public

establishments under their authority +对其管辖下的地方当局和公共机构进行先验 /现代预算控制

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The Regional Audit Chambers“地区审计法院”(created in 1983)（建于 1983年）

Independencefrom government, Parliament and judicial authorities

独立于政府、议会和司法机关

Freedom to audit and control any aspect of the daily management of local authorities and bodies

对地方政府和机构日常管理各项内容进行自由审计和控制

Neither entitled to conduct searches nor to resort to special techniques of

investigations 无权进行搜查，亦无权使用特殊调查技术

But possibility to refer suspected criminal offences to the judicial prosecutor( 30 cases in 2013)

但是可将可疑刑事犯罪提交司法检察官进行处理（ 2013年有 30个案件）

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Characteristics of Regional Audit Chambers地区审计法院的特征

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The French judicial system for combating fraud and corruption 法国打击欺诈和腐败司法体系

Starting 2004, 8 specialized courts at provincial levelto handle complex cases requiring a high level of technical expertise

自 2004年， 8个省级专门法庭处理需要高级技术能力的复杂案件

Law of October 11th, 20132013 年 10 月 11日的法律

Mandatory disclosure of personal assets and of interests from a number of local government representatives (above 20 000

inhabitants) 强制一些地方政府代表（ 2万以上居民）披露个人财产和权益信息

Creation of a national independent authority in charge of checking the disclosures.

创建了一个独立的国家级机关负责检查这些披露项目

False or incomplete disclosures will be sanctioned by fines.虚假或不完整的披露将被罚款

• Laws of December 6th, 2013• 2013 年 12 月 6日的法律

• 1) Reinforces the entitlement of investigators to use special investigation techniques in corruption cases

(existing since 2007)1）加强调查员在腐败案件中使用特殊调查技术的权利（自 2007年起开始存在）

• 2) Creation of a National Financial Public Prosecutor’s office (starting 1st of march 2014)

2）创建了国家金融公关检察官办公室（自 2014 年 3 月 1日起）

• 3) Reinforcement of penal sanctionsup to 1.000.000 € for natural persons + 10 years emprisonment

3）加强个人制裁，自然人至多 100万欧元 +10年监禁

• 4) Special provisions to encourage referral of corruption• 4）鼓励举报腐败的特别条款

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Protection of public sector whistleblowers保护公共领域的举报者

A provision of the French Code of Criminal Procedure (article 40) requires all public-sector employees who become aware of the existence of a crime or an offence during the performance of their

duties to report it to the public prosecutor. 法国《刑事诉讼法典》第 40条规定要求所有公共领域雇员在履行职责发现犯罪或违法行为时向公共检察官进行举报。

To facilitate the respect of this requirement, public sector whistleblowers are now entitled to the same protection measures as private sector whistleblowers, who, since 2007, cannot be sanctioned

for making fraud or corruption disclosure.为鼓励这一做法，公共部门的举报者可与私营部门举报者享有同等保护措施，私营部门举报者自 2007年起就不能因

披露欺诈或腐败行为而受处分。

Article 40-6 of the Code of criminal procedure also foresees that «the person who reported an offence or a crime made in the enterprise or the administration he works in, contacts, at his request, the Central Service for the prevention of corruption when the reported offence is within the competence of this

Service».《刑事诉讼法法典》的 40-6条还规定“检举其所在企业或单位内违法犯罪行为的个人，在此等违法行为属于法国预

防贪污腐败中心负责时，可要求与该局取得联系。”

Powers granted to specialized non-governmental organizations准许反腐非政府组织拥有的权利

Registered associations whose statutory objective is to combat corruption, such as Transparency International, now have the capacity to initiate, as a private party, a criminal procedure

about breaches of integrity, before the French courts..担负打击腐败法定目标的注册协会，比如透明国际（ Transparency International），现在能像私营机构一样，在

法国法庭中对违反操守的行为提起刑事诉讼。

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Conclusion结论

Laws are necessary but of little help if not supported by a strong political will, evidenced by the human, legal and material means given to the authorities in charge of combating fraud and corruption

法律是必不可少的，但是如果缺乏强有力的政治决心予以支持，再多的法律也无多大用处。政治决心体现在给予反腐反欺诈机关足够的人员、法律和物质保障

Prevention and repression must be consistent and coordinated at the highest level

最高层对反腐的预防和压制必须始终如一和协调一致

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THANK YOU FOR YOUR ATTENTION!谢谢聆听！