基于监察机关法定职权的监察建议:功能、定位及其法治化

Supervisory Suggestions Based on Legitimate Authority of Supervisory Organ:Functions, Positioning and Legalization

基于监察机关法定职权的"监察建议",应当区别于广泛意义上的监察"建议"来专门研究。监察建议以法治化反腐为逻辑起点,对监察决定无法触及的内容予以补充(督促型监察建议)、对内部处置明显失当的内容予以纠正(纠错型监察建议)、对个案暴露的廉政制度缺陷予以优化(整改型监察建议),从而成为监察全面覆盖与自主惩戒权之联结枢纽及标本兼治、综合治理之实现路径。监察建议的合理定位是立足监察职能、结合执法办案、遵循依法监察,避免沦为"一般监督",由此在性质定位上全面区别于行政监察建议。立法不宜对监察建议作开放式列举。监察建议的法律规制体系应从主体限定、前提条件、程序控制、异议程序和救济机制等五个层面共同构建。监察建议之设计实践还需维系既有宪制格局并尊重内部自治秩序,在惩治腐败行为、构建监察权威与尊重自治规律之间寻求价值平衡。

Supervisory suggestions based on the legitimate authority of supervisory organ should be differentiated from the supervisory suggestions in broad sense, and studied separately. With legalized anticorruption as the logical starting point, supendsory suggestions supplement contents which cannot be touched by supervisory decision ( urging supervisory suggestions), correct contents which are obviously improperly handled on the inside ( corrective supervisory suggestions), and optimize clean governance systems whose defects are exposed in individual cases ( rectifying supervisory suggestions). Hence, they become the bond between full coverage of supervision and autonomous punishment power, and serve as a means of seeking both temporary and permanent solutions, and realizing comprehensive governance. The reasonable position of supervisory suggestions is to stick to lawful supervision based on supervisory function ,law enforcement and case handling, and avoid being reduced to ugeneral supervision''. By so doing, it completely differs from administrative supervisory suggestions in terms of qualitative position. Open remuneration in legislation is not suitable for supervisory suggestions. The legal systems of supervisory suggestions should be constructed in such five aspects as subject limitation, prerequisites, procedure control, opposition procedure and remedy mechanism. The design practice of supervisory suggestions should maintain the current constitutional pattern, respect internal autonomy order and strike a value balance between punishment of coiTuptive behavior and establishment of supervisory authority, and respect for autonomy patterns.