监察对象应然范围的理论逻辑与识别路径

On the Scope of the Objects of Supervision:Theoretical Logic and Identification Approaches

对国家监察对象的范围界定是监察法治运行体系的实践基础。一方面,传统的监察对象认定方案尚不能满足识别准确性、覆盖全面性与操作有效性等价值目标;另一方面,《实施条例》对监察对象的细化也引领着学理观点的适时修正。上述两点原因是“后监察法”时代中再论监察对象应然范围的现实基础。监察对象认定标准的建构需要对《监察法》的规范文本进行再解读,明确总则“公职人员”与分则“公职人员”“有关人员”各自的实质内涵。同时应确立“行为属性”的唯一内核地位,摒弃“身份属性”对认定监察对象的直接或间接影响。基于对《监察法》及《实施条例》的规范分析,监察对象的界定应采取“管理职能权利来源的国家代表性”标准。“管理职能”“权力来源”与“国家代表性”分别对应着“行使公权力”的行为方式、法律评价与本质特征3个方面,是对“行使公权力”这一实质标准的具体化。不同法域下监察对象的身份衔接存在识别过程与转换适用两个环节,对此应树立不同的处理思路以促进监察法与其他法律体系的融贯与协调。

The scope definition of the object of our national supervision is the practical basis of the legal operation system of supervision.On the one hand,the traditional identification scheme for the supervisory target is stll unable to meet the value-based objectives such as identification accuracy,comprehensive coverage and operation efficiency.On the other hand,the refinement of the object of supervision in Implementation Regulations also leads to the timely revision of academic views.The above two reasons are the realistic basis for rediscussing the scope of the object of supervision in the era of post-supervisory law.Firstly,the construction of the standards for the identification of the objects of supervision needs to re-interpret the normative text of Supervisory Law to clarify the essential implications of"public officials"in the general provisions and"public officials"and"related personnel"in the specific provisions respectively.Secondly,it is necessary to establish the sole core status of"behavioral attribute"in the identification of the objects of supervision,and discard the direct or indirect influence of""identity attribute"on the identification of the objects of supervision.Based on the normative analysis of Supervisory Law and Implementation Regulations,the definition of the object of supervision should be"the national representation of the source of management functions and rights"."Management function","the source of administrative power"and"state representativeness"correspond respectively to the aspects of the behavioral model,legal evaluation and essential characteristics of"exercising public power",which are the embodiment of the substantive standard of"exercising public power".In fact,the identification process and the transformable application are the two links in connection with the identity of supervisory targets in different legal domains.Different processing ideas should be formed to promote the integration and coordination of Supervisory Law and other legal systems.