行政公益诉讼起诉条件的适用检视与一体化重塑

Reflection on the Application of the Subjects of Prosecution in Administrative Public Interest Litigation and its Integrated Reshaping

2017年,全国人大常委会修改《行政诉讼法》,明确检察机关享有提起行政公益诉讼,保障行政机关依法履职的权能。经过五年全面实施,办案实践分别从起诉期限属性、被告明确性、诉请具体性、管辖隶属性认定等四个方面出发,尝试确定起诉条件适用标准,提高行政公益诉权运行效能。由于一方面偏差定位行政法律监督功能,在国家治理体系层面,忽略国家权力之间的“功能秩序”平衡,另一方面尚未明确诉讼程序的保障性,在检察系统层面,忽略检察权能之间的“梯级秩序”平衡,导致检察机关适用行政公益诉讼起诉条件存在诸多缺失。为弥补缺失,有必要在考量逻辑参照的基础上,明确起诉条件的构成要件,排除适用起诉期限,统一被告明确性、诉请具体性判断标准。

In 2017,the Standing Committee of the National People's Congress revised the Administrative Procedure Law,which made it clear that the procuratorial organs have the power to file administrative public interest litigation,in order to ensure that administrative organs perform their duties in accordance with law.After five years of comprehensive implementation,procuratorial organs try to determine the applicable standards for subjects of prosecution in administrative public interest litigation from the four aspects of determination of the nature of the time limits,the clarity of the defendant,the specificity of the claim,and the the attribute of jurisdiction.However,thanks to the procuratorial organs deviating from the function of the legal supervision and not yet clarifing the guarantees of the proceedings,they result in many deficiencies in the procuratorial organs applying of the subjects of prosecution in administrative public interest litigation.In order to make up for the deficiencies,it is necessary to clarify the constituent elements of the subjects of prosecution on the basis of considering logical references,exclude the application of the time limits,and unify the criteria for judging the clarity of the defendant and the specificity of the claim.