国家治理视野下检察行政公益诉讼诉前程序功能省思--以环境公共利益救济为例

Reflections on the Function of Pre-litigation Procedure of Procuratorial Administrative Public Interest Litigation from the Perspective of National Governance——Taking Environmental Public Interest Relief as an Example

当下检察机关对行政公益诉讼诉前程序进行了大量制度创新,凸显了诉前程序的独立价值,并逐渐演变为由检察机关深度参与的一种新型社会治理机制。实践的突破对既有诉前程序理论与规范的冲击也随之而来,反映出检察行政公益诉讼诉前程序与诉讼程序一体化的制度设计造成法律监督范围、管辖规则以及公共利益救济等方面的诸多矛盾,根源在于传统的诉讼思维遮蔽了诉前程序在现代国家治理中的独特价值。厘清诉前程序的功能价值,应将其从诉讼场域转向治理场域,实现从司法审查到协同治理、从程序警示到实质性救济、从事后救济到风险预防的三重转变,并从磋商程序的适用规则、检察机关一体化管辖以及协同功能的保障措施与限制措施等方面完善当下检察行政公益诉讼相关制度。

At present,procuratorial organs have carried out a lot of institutional innovations in the pre-litigation procedure of administrative public interest litigation in judicial practice,which increasingly shows the functional characteristics of surpassing ordinary litigation procedures in nature,highlighting the independent value of pre-litigation procedures.However,the breakthrough of practice has caused an impact on the theory and norm of pre-litigation procedure.The fundamental reason is that the current system design causes difficulties in the scope of legal supervision,jurisdiction rules and public interest relief.The function of pre-litigation procedure is not only a component of litigation,but also a component of social governance,based on which the functions of pre-litigation procedure include collaborative governance,public welfare relief and risk prevention.Based on the above functions,this paper also puts forward some suggestions on perfecting the rules for the use of consultation procedures.