行政公益诉讼的功能定位与作用场域拓展--以环境群体性事件的法治化处理为视角

The Functional Orientation and Field Expansion of Administrative Public Interest Litigation

我国行政公益诉讼的"官告官"模式具有里程碑式意义。然而其虽冠以诉讼之名,实践中却以非诉检察监督为主要方式,作用场域是消极型行政不作为争议,表现为立法上的"体例错位"和实践中的"实效错位"。行政公益诉讼制度的功能定位应当侧重于通过法院审判程序审理有实质争议的案件,从而规制行政机关违法行使职权行为,其作用场域应当聚焦于积极型行政公益争议。现有制度框架下,环境群体性事件可以提供制度完善的良好契机,检察机关对群体性事件中的争议提起行政公益诉讼,促使群体意见表达理性化和公益衡量科学化,可以避免"一闹就停"或者"强力维稳"两个极端,预防公共利益不理性损失。另外,通过优化诉讼程序、法律责任制度和利益衡量方法,行政公益诉讼可以更好地适用于涉群体事件的行政公益纠纷。

The significance of the mode of"official suing official"of administrative public interest litigation in China is a milestone,but on the contrary,although it is in the name of litigation,it actually has no litigation.With non-litigation procuratorial supervision as the main mode,the field of action becomes the dispute of negative administrative omission,which is shown as the"dislocation of the system"in legislation and the"dislocation of actual effect"in practice.The functional orientation of the administrative public interest litigation system should focus on hearing substantially disputed cases through court trial procedures so as to regulate the illegal exercise of functions and powers of administrative organs and its field should focus on positive administrative public interest disputes.Under the existing institutional framework,environmental group events can provide a good opportunity to improve the system.Procuratorial organs initiate administrative public interest litigation against disputes in group events to promote the rational expression of group opinions and the scientific measurement of public welfare.The two extremes of"stopping as soon as you make trouble"or"strong maintenance of stability"can be avoided and the irrational loss of public interest can be prevented.In addition,administrative public interest litigation can be better applied to administrative public interest disputes involving group events by optimizing litigation procedures,legal liability system and interest measurement methods.