检察机关在行刑反向衔接监督机制中的作用与职责

The Role and Responsibility of the Procuratorate in the Supervision Mechanism of the Reverse Connection of Administrative Enforcement and Criminal Justice

2023年7月14日,最高人民检察院印发《关于推进行刑双向衔接和行政违法行为监督构建检察监督与行政执法衔接制度的意见》,明确了行刑正向衔接和行刑反向衔接中的监督机制。该《意见》出台的背景有两个制度驱动力:一是2021年修订的《中华人民共和国行政处罚法》第27条第1款确立的刑事优先移送规则与轻罪治理改革对行刑衔接体制带来的衍生问题亟需处理;二是我国传统行刑衔接机制中存在沟壑与堵点,无法仅仅通过程序性衔接机制予以化解。行刑衔接的顺利运行需要主导机制和整体认知的支撑。从德国的经验来看,检察机关可在行刑反向衔接机制的管辖权、优先处置权和移送权等方面发挥主导与关键作用,实行的是职权主导的衔接机制。而我国则需以检察监督为抓手应对“行刑”规范重合、移送程序不健全、行政不法与刑事不法无法区分等行刑反向衔接问题,健全监督主导的衔接机制。行政检察部门在行刑反向衔接中应明确衔接的基础和标准,并聚焦于法人的违法行为监督问题上。

On July 14th,2023,the Supreme People’s Procuratorate issued the Opinions on Promoting the Two-way Connection of Enforcement and the Supervision of Administrative Violations and Constructing the Connection System between Procuratorial Supervision and Administrative Law Enforcement,which clarified the supervision mechanism of the positive and the reverse connection of administrative enforcement and criminal justice.The background of the Opinions has two institutional driving forces.Firstly,the criminal priority transfer rule established in paragraph 1,Article 27 of the Law on Administrative Penalty revised in 2021 and the derivative problems brought about by the reform of misdemeanor governance need to be dealt with urgently.Secondly,there are gullies and blockages in the traditional linking mechanism of execution in China,which cannot be solved only through the procedural linking mechanism.The smooth operation of execution convergence needs the support of leading mechanism and overall cognition.From the experience of Germany,procuratorial organs can play a leading and key role in the jurisdiction,priority disposal and transfer right of the reverse connection mechanism of execution,and implement the connection mechanism dominated by functions and powers.However,China needs to take procuratorial supervision as the starting point to deal with the problems of the reverse convergence of execution,such as the overlapping of“execution”norms,the imperfect transfer procedure,and the indistinguishability between administrative illegality and criminal illegality,and improve the convergence mechanism led by supervision.The administrative procuratorial department should clarify the basis and standard of the supervision of the reverse connection of execution,and focus on the illegal acts of legal persons.