检察公益诉讼地方立法研究——以25个省级人大常委会关于检察公益诉讼专项决定为样本

Research on the Local Legislation for Procuratorial Public Interest Litigation——Taking as a Sample the Special Decisions of the Standing Committees of 25 Provincial people’s Congresses on Procuratorial Public Interest Litigation

自检察公益诉讼制度全面实施以来,有超过四分之三的省级人大常委会做出专门规定。省级人大关于检察公益诉讼的专项决定具有检察公益诉讼“制度法”“地方法”的特点,具有鲜明的问题导向、创新意识以及前瞻性思维,是检察机关履职办案的保障法、监督规范法。专项决定明确和拓展了检察公益诉讼的案件范围;细化了检察机关调查核实权的具体手段方式;明确了各相关主体在检察公益诉讼工作中的职责,勾勒了检察公益诉讼制度的基本框架。专项决定为检察公益诉讼办案实践提供了有力依据,促进了制度建设,为推进专门立法积累了有益经验,呈现了具有鲜明中国特色的“改革决策——立法完善”的制度发展范式以及地方立法、其他地方性规范在其中的重要作用。专项决定具有地方立法和准地方立法的性质,是人大行使监督权的具体体现;是在工作层面提出要求,并不涉及公益诉讼的基本制度,未违反立法法关于法律保留事项的规定;是一种“赋权确认型地方立法”,以解决上位制度供给与本地制度需求不平衡的问题。专项决定具有制定程序相对简单、效率高等优势,也受到一定限制。专项决定需要根据公益诉讼实践的新需求不断进行优化,检察机关要主动参与其中。

Since the full implementation of the procuratorial public interest litigation system,more than three-quarters of the standing committees of provincial people’s congresses have made special provisions.These special decisions made by the provincial people’s congress present the characteristics of“system law”and“local law”of procuratorial public interest litigation.It has a clear problem-oriented,innovative consciousness and forward-looking thinking for the procuratorial public interest litigation,performing as the guarantee law and supervision normative law for procuratorial organs to perform their duties.The special decision clarifies and expands the scope of cases in procuratorial public interest litigation,refines specific means and methods for the procuratorial organs’investigation and verification powers,clarifies the responsibilities of all relevant entities in procuratorial public interest litigation work,and outlines the basic framework of the procuratorial public interest litigation system.The special decision provides a strong basis for the practice of procuratorial public interest litigation case handling,promotes the construction of the system,accumulates useful experience for promoting special legislation,and presents the institutional development paradigm of“reform decision-making-legislative improvement”with distinctive Chinese characteristics,as well as the important role of local legislation and other local norms in it.The special decision has the nature of local legislation and quasi-local legislation,and is a concrete embodiment of the people’s congresses’exercise of supervisory power.It is a request made at the working level,neither interfering the basic system of public interest litigation,nor violating the provisions of the Legislation Law on legal reservations.It is an“empowerment affirmative local legislation”to solve the problem of the imbalance between the supply of higher-level institutions and the demand of local institutions.The special decision has the advantages of relatively simpler production procedures and higher efficiency,but is also subject to certain restrictions.Special decision needs to be continuously optimized according to the new needs of public interest litigation practice,and the procuratorate should actively participate in it.