检察行政附带民事公益诉讼制度的构建困境与突破路径——以检察环境公益诉讼为例

Construction Dilemma and Breakthrough Path of Procuratorial Administration Incidental Civil Public Interest Litigation——Take Procuratorial Environmental Public Interest Litigation as an Example

作为一种实践先于立法的诉讼制度,检察行政附带民事公益诉讼具有有效化解单一公益诉讼模式局限性,显著提高诉讼效率、节约司法资源,充分保障司法权威、保障司法公平公正等重要功能。但囿于当前法律对于公益两诉一并审理尚未从制度上予以确立,司法实践中行政附带民事公益诉讼这一制度在诉前程序、级别管辖和举证责任等方面存在一定的矛盾与问题。因此,需要不断探索优化路径来突破两诉衔接上的困境,从而构建检察行政附带民事公益诉讼制度,使得公益“两诉”能够取长补短,最大限度保护公共利益。具体措施大致包括取消附带民事公益诉讼的诉前程序,改变附带民事公益诉讼的级别管辖,明确举证责任,强化检察机关调查取证权等。

As a litigation system in which practice precedes legislation,procuratorial administration accompanied by civil public interest litigation has the important functions of effectively resolving the limitations of single public interest litigation mode,significantly improving litigation efficiency,saving judicial resources,fully guaranteeing judicial authority,and ensuring judicial fairness and justice.However,due to the fact that the co-trial of“two lawsuits”has not been established in the current law,there are certain contradictions and difficulties in the pre-lawsuit procedure,level jurisdiction and burden of proof in judicial practice.Therefore,it is necessary to constantly explore and optimize the path to break through the dilemma of the connection between the two lawsuits,so as to construct the procuratorial administration accompanied by civil public interest litigation system,so that the public interest“two lawsuits”can complement each other and protect the public interests to the maximum extent.Specific measures generally include:cancel the pre-trial procedure of incidental civil public interest litigation,change the level of jurisdiction of incidental civil public interest litigation,clarify the responsibility of collecting evidence,and strengthen the procuratorial organs' power to investigate and collect evidence.