检察机关提前介入监察调查的制度性思考

Institutional Thinking of the Prior Intervention by Procuratorate in Supervision Investigation

提高监察工作的效率和增强职务犯罪案件的办理质量,应该以监察调查与刑事诉讼程序的有效衔接为前提。作为强化程序衔接的一项重要措施,检察机关提前介入监察调查的根本目的在于追求“配合”与“制约”的协调统一。立足于现行的规范性文本,检察机关提前介入监察调查存在介入地位的被动性、介入方式的间接性和介入决策的协商性3个特点,在总体上呈现检察机关服从式配合的结构样态。欲在法治反腐的程序思维下实现“配合”与“制约”两种功能的平衡,应该从以下几个方面进行制度完善:优化程序结构、引入直接审查方式和明确决策主体,以提升检察机关提前介入的程序主导地位;厘清基本任务、区分内外两种介入机制和增强检察建议实效,以明晰检察机关提前介入的职责范围;界定案件范围、提前时间节点和扩展参与权限,以细化检察机关提前介入的操作规程。

Improving the efficiency of supervision and enhancing the quality of handling crimes on the job should be based on the effective connection between supervision investigation and criminal procedures.As an important measure to strengthen the connection of procedures,the fundamental purpose of the prior intervention by procuratorate in supervision investigation is to pursue the coordination and unification of“cooperation”and“restriction”.Based on the current normative texts,The prior intervention by procuratorate in supervision investigation has three characteristics:the passivity of intervention status,the indirectness of intervention methods,and the negotiability of intervention decision-making,which generally presents the structure of obedient cooperation of procuratorate.To achieve the balance between“cooperation”and“restriction”by the procedural thinking of legal anti-corruption,the system should be improved from the following aspects:optimizing the procedural structure,introducing direct review methods,clarifying the decision-making subject to enhance the procedural dominance of the prior intervention by procuratorate;clarifying basic tasks,distinguishing between internal and external intervention mechanisms and enhancing the effectiveness of procuratorial suggestions to clarify the scope of responsibilities of the prior intervention by procuratorate;defining the scope of cases,advancing the time node and expanding participation competence to refine the operating procedures for the prior intervention by procuratorate.