行政公益诉讼中检察机关的角色定位与职能重构

Role Positioning and Function Reconstructing in Procuratorial Organs in Administrative Public Interest Litigation

原告资格问题是行政公益诉讼制度的核心问题之一,对此学界存在一元论、二元论和多元论等观点。现行立法将检察院在行政公益诉讼中的身份界定为“公益诉讼人”,回避了行政公益诉讼的诉讼模式、法律性质及检察机关的诉讼地位问题。应当说,赋予检察机关行政公益诉讼起诉权,突破了传统诉讼理论中的原告适格理论,具有宪法基础,在我国社会个体公共意识有待增强、诉讼能力有待提高的现实背景下不失为一个合理选择。但建立在传统理念基础之上的行政公益诉讼起诉主体制度,忽略了国家治理现代化语境下公共利益维护机制的多元化,容易导致检察机关陷入角色混乱和权力混合的困境。着眼于未来,应不断放宽行政公益诉讼起诉资格,赋予更多社会主体行政公益诉讼起诉权。具体可以通过制定《检察公益诉讼法》(或《公益诉讼法》)重构行政公益诉讼主体制度,围绕“法律监督”逻辑重塑检察机关在行政公益诉讼中的角色定位和身份职责。

Plaintiff qualification is among the core issues in the administrative public interest litigation system,and there are theories of monism,dualism,and pluralism in this academic field.The procuratorate in administrative public interest litigation is defined in current legislation as a public interest litigant,thus in administrative public interest litigation avoiding such issues as litigation mode,legal nature,and litigation status of the procuratorate.It should be said that empowering procuratorial organs to sue in administrative public interest litigation breaks through the traditional limit of plaintiff qualification in litigation theory,and is constitutional.Citizens public awareness needs to be enhanced and litigation capacity needs to be improved in today's society of China.In the perspective of this reality,it is indeed a reasonable choice to do so.However,the system of administrative public interest litigation prosecution based on the traditional concept of decentralization and balance of power ignores diversification of public interest maintenance mechanisms in the context of modernization of state governance,thus easily leading to the confusion of roles and mixed power of procuratorial organs.Focusing on the future,we should go on with relaxing the qualifications for administrative public interest litigation and empower more social entities to sue in administrative public interest litigation.Specifically,the Public Interest Litigation Law can be made to reconstruct the system of administrative public interest litigants,and to reposition their roles with redefined responsibilities of procuratorial organs in administrative public interest litigation under the principle of legal supervision.