监察机关不移送起诉制度的规范化构造

On the Standardized Construction of the Supervisory Organ's Non-transfer to Prosecution System

作为监察机关处置权的延伸,不移送起诉可被视为监察机关的一种独立处置类型。对此,《监察法实施条例》初设了“情节较轻不移送”“不需要追究刑责不移送”两种情形。不移送起诉的制度设置契合了监察机关在腐败治理中的主导地位,所实现的非罪化处置后果有利于指引被调查人配合监察机关的反腐败调查,提高反腐败工作效率,但基于法治要求亦需要防范“以纪代刑”风险。从制度构造而言,监察机关不移送起诉的立法规定存在适用要件不清、出罪后替代处罚措施不明、监督制约机制缺乏、救济手段不足等弊端。规范监察机关不移送起诉权,在根本上需要防范不移送起诉权滥用风险,完善监察机关不移送起诉的监督制度。具体而言,应在立法上将不移送起诉的案件范围限于轻微犯罪,明确不移送起诉的实体和程序要件,配套制定不移送起诉后的非罪化处罚替代措施以及对原有处分的加重处罚规则,在此基础上设置不移送案件的内部提级监督程序,并构建“监察—司法”衔接中的权利救济制度。

As an extension of the disposition power of the supervisory organ,non-transfer to prosecution should be regarded as an independent disposition type of the supervisory organ.In this regard,The Regulation on the Implementation of the Oversight Law two paradigms of the“do not transfer because of minor offences”and“do not transfer because criminal responsibility is not claimed”.The establishment of the system of nontransfer to prosecution by the supervisory organ accords with its leading position in the corruption governance,and the result of the decriminalization treatment is conducive to guiding the investigated person to cooperate with the anti-corruption investigation,to improve the efficiency of anti-corruption work.However,there exist the risk of applying disciplinary punishment instead of criminal punishment.In terms of system structure,there are some defects in the legislative provisions of non-transfer to prosecution,such as unclear constitutive requirements,unclear alternative punishment measures after conviction,lack of supervision and restriction mechanism,and insufficient relief means.In order to standardize the non-transfer to prosecution power,it is necessary to guard against the risk of abuse of the non-transfer to prosecution power.In particular,the scope of non-transfer to prosecution should be limited to minor offences and the entity and procedural elements of non-transfer to prosecution should be specified,supporting the establishment of non-transfer to prosecution of non-criminal punishment alternative measures,as well as its impact on the original government punishment rules,setting up the internal system of the promotion of approval and supervision procedures,constructing the right relief system in the mode of“supervisory-judicial connection”.