监察建议的法解释学展开——概念构成、适用范围与法律效果

On the Legal Dogmatics of Supervisory Suggestions:Conceptual Structure,Scope of Application,and Legal Effect

在监察对象仅限于个人的制度背景下,针对监察对象所在单位提出的监察建议实质上延伸了监察权的覆盖范围,承担着从个案查处迈向领域治理的重要功能。通过对监察建议的法律规范和观点学说展开梳理,进而在法解释学工作中澄清其概念构成、适用范围与法律效果。在概念构造上,监察建议属于“对单位监察”而非“对事监察”,其发动具有附随性,其主体具有特定性;建议的指向内容须有针对“廉政建设和履行职责存在的问题”所作的平义解释和限缩解释。在适用范围上,现有学说和实务中主张的“问责建议”“处理建议”“纠正建议”“处罚建议”均不符合监察建议的概念构成;内容指向的“履行职责存在的问题”应根据是否属于监察机关专业领域而做不同标准理解。在法律效果上,监察建议相较于处理决定具有一定的“弹性”,可借鉴相关制度完善异议,提出程序与正当理由认定程序。

In the institutional context where that the object of supervision is limited to individuals,supervision suggestions put forward for the unit of the object of supervision essentially extend the coverage of the power of supervision,and assume the important function from case investigation to domain governance.At present,it is necessary to sort out the legal norms,viewpoints and doctrines of supervisory suggestions,and then clarify their conceptual structure,scope of application,and legal effect in the work of legal dogmatics.In terms of conceptual structure,supervision suggestions are derived from“supervision to units”rather than“supervision to matters”.The launch of the suggestions is incidental,the subject who proposes the suggestions is specific,and the content of the suggestions should be explained aimed at“problems existing in the construction of a clean government and the performance of duties”in the sense of plain meaning and in the sense of restrictive interpretation re⁃spectively.In terms of the scope of application,the“accountability suggestions”,“treatment suggestions”,“cor⁃rection suggestions”,and“punishment suggestions”advocated in the existing theories and practices do not con⁃form to the conceptual structure of supervisory suggestions and should be excluded.However,for the“problems existing in the performance of duties”,it is necessary to distinguish whether they belong to the professional field of supervision organs and make different standards for understanding.In terms of legal effect,supervisory sug⁃gestions are“flexible”compared with the supervisory handling decisions,and relevant systems can be used for reference to improve the procedure for raising objection(s)and procedure for justified reason identification.In addition,supervisory organs should be defined as the subject of“giving treatment or handling according to law”.