论作为监察对象的村委会管理人员

A Study of the Managers of the Village Committees as the Supervisory Target

在国家监察体制改革深化推进的背景下,2018年《监察法》第15条明确将村委会管理人员纳入监察范围。一方面,村委会管理人员行使的公权力分为两类,即国家公权力和部分社会公权力;另一方面,作为监察对象的村委会管理人员并非当然具有职务犯罪主体身份。通过对206份刑事判决书进行分析得知,有必要在保障基层自治的前提下,健全监督村委会管理人员行使公权力行为的规范方案:第一,凸显村委会管理人员作为公职人员的法律地位;第二,明确村委会管理人员在履行管理职责过程中行使公权力的主要内容;第三,丰富包括监察机关在内的多元监督主体的监督方式;第四,强化村委会管理人员不当用权的法律责任。由此,方能加强监察机关对村委会管理人员进行监督的工作质效,实现国家监察全面覆盖的改革目标,助推基层社会治理现代化发展。

Against the background of the reform of the national supervisory system, Article 15 of the Supervision Law of 2018 clearly includes the managers of the village committees(the MOVC) in the scope of supervision. On the one hand, the public power exercised by the MOVC is divided into two categories, namely, the national public power and some social public power. On the other hand, the MOVC as the supervisory target do not naturally have the subject-status of work-related crimes. The analysis of 206 criminal judgments reveals the following implications: on the premise of ensuring the grass-roots self-government, it is necessary to improve the normative schemes for supervising the performance of duties by the MOVC according to law: first, it is necessary to highlight the legal status of village committee managers as public officials;second, it is necessary to clarify the main contents of exercising their public power while on duty;third, it is necessary to enrich the supervision methods of multiple supervision subjects, including the supervisory institution;fourth, it is necessary to highlight the legal responsibility of the MOVC for their improper exercise of power. The above-mentioned means will strengthen and improve the supervision of the MOVC by supervisory institutions and promote the modernization of grassroots social governance.