环境民事公益诉讼的检察权定位及运行

Positioning and Operation of Procuratorial Power in Environmental Civil Public Interest Litigation

环境民事公益诉讼作为新时代人民检察院履行法律监督职责的重要领域,对于推动检察职能全面协调充分发展具有现实意义。环境民事公益诉讼具备吸收生态环境损害赔偿诉讼的法理依据和实践基础。检察权在广义的法律监督定位下,分为审查权、起诉权、狭义监督权三项权能。环境民事公益诉讼检察权基于公共利益代表和诉讼担当定位,以起诉权为显性权能,应避免凭借狭义监督权获得明显不当的诉讼优势地位;基于生态环境治理规律,以实现受损法益填补和生态环境修复为诉讼目的,并探索预防性环境民事公益诉讼制度,恪守检察权必要的谦抑性。构建以人民检察院支持起诉为主的环境民事公益诉讼检察权运行机制,人民检察院与政府系公益诉讼法定代理关系,当政府因特定事由不适宜作为公益诉讼原告的,由人民检察院履行“代位权诉讼”职责自行提起公益诉讼。同步构建人民检察院对环境刑事附带民事公益诉讼的一体化办案机制,建立相对统一的法律适用标准,将全面介入引导侦查取证与政府协同取证相结合,将赔偿磋商与人民检察院履行审查批捕、公诉等职能有机衔接,并对附带提起或另行提起环境民事公益诉讼进行风险甄别。

Environmental civil public interest litigation,as an important field for the people’s procuratorate to perform its legal supervision duties in the new era,is of practical significance for promoting the comprehensive,coordinated and full development of the procuratorial function.Environmental civil public interest litigation has the legal basis and practical basis of absorbing ecological environment damage compensation litigation.Under the broad legal supervision orientation,the procuratorial power is divided into three functions:review power,prosecution power and narrow supervision power.The procuratorial power of environmental civil public interest litigation is based on the position of public interest representative and litigation responsibility,and takes the right of prosecution as the explicit power.We should avoid obtaining an obvious and improper litigation dominant position by virtue of the narrow supervision power;Based on the law of ecological environment governance,in order to realize the filling of damaged legal interests and the restoration of ecological environment,explore the preventive environmental civil public interest litigation system,and abide by the necessary modesty of procuratorial power.Build an operation mechanism of the procuratorial power of environmental civil public interest litigation based on the support of the people’s procuratorate for prosecution.The people’s procuratorate and the government are the legal agency relationship of public interest litigation.When the government is not suitable to be the plaintiff of public interest litigation due to specific reasons,the people’s procuratorate shall perform the duty of“subrogation litigation”and file public interest litigation on its own.At the same time,we should build an integrated case handling mechanism of the people’s procuratorate for environmental criminal incidental civil public interest litigation,establish a relatively unified standard of legal application,combine comprehensive intervention and guidance of investigation and evidence collection with government collaborative evidence collection,organically connect compensation consultation with the people’s procuratorate’s functions of examination,arrest approval and public prosecution,and screen the risk of incidental or separate environmental civil public interest litigation.