检察机关支持起诉的核心问题与逻辑思辨——以构建“支持诉讼”制度为导向的分析与优化
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中央司法警官学院 法学院,河北 保定 071000

作者简介:

齐蕴博,中央司法警官学院副教授,Email:qyb114@163.com。

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D925.2

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Core issue and logical speculation of procuratorial organ supporting litigation: Analysis and optimization oriented towards the construction of a support litigation system
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Law School, The National Police University for Criminal Justice, Baoding 071000, P. R. China

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    摘要:

    检察机关支持起诉,是指民事权益遭受损害的主体因畏惧或诉讼能力不足难以有效参与民事诉讼时,检察机关支持其提起民事诉讼,以维护其权益的机制。近年来,检察机关支持起诉在民事司法实践中不断探索推进,但是相关争议并未停止。主要争议点在于检察机关支持起诉的必要性,支持案件范围与条件的明确性,参与法庭审理的正当性,与其他程序的衔接等问题上,这也是构建检察机关支持起诉制度的核心问题。当前学术界多从民事诉讼程序正义视角检视检察机关支持起诉制度,质疑检察机关支持起诉破坏诉讼等腰三角形结构,影响当事人处分原则,干扰司法中立等,认为检察机关支持起诉应当保持谦抑性,甚至取消。但是仅从这一个视角来评价检察机关支持起诉制度是不够的,还应当结合我国民事诉讼模式以及民事司法运行的现实情况来探讨。从检察机关支持起诉存在的必要性与正当性看,当前我国民事诉讼遵循了当事人主义诉讼模式,诉讼中的法院处于消极地位,由当事人承担诉讼中的调查、举证、证明、提出诉论请求等义务,这对于诉讼能力不足及惧于起诉的当事人来讲行使诉权非常困难。检察机关支持起诉能够实现诉讼中诉权实质平等,彰显司法权威与正义,维护民事法律秩序,是对消极司法模式的必要补充,具有重要的存在意义。从检察机关支持起诉的受案范围来看,当前立法规定较为模糊。公益诉讼案件支持起诉存在涉及范畴广、专业性强、不好把握以及学界质疑检察机关履职的问题,建议通过完善各部门法的规定解决公益诉讼启动的法律标准问题,通过人民参与性的法律评估机制解决检察机关支持公益诉讼封闭性带来的质疑的问题。在私益诉讼中,为解决支持起诉标准不清、检察机关定位模糊的问题,建议将诉讼能力较弱、不敢起诉、对本地方治理具有重要影响、通过案件筛查评估机制等作为检察机关支持起诉的标准,彰显检察机关支持起诉的精准性、权威性与引领性。在检察机关支持起诉的参与方式上,学界忌惮检察机关的检察监督权,质疑检察机关参与庭审的正当性。但从法理与司法实践来看,支持起诉并没有破坏等腰三角形结构,检察机关参与庭审能够补充当事人诉讼能力的不足,给予当事人诉讼勇气,有助于查明事实,提升庭审效能,应当赋予检察机关有限的庭审参与权。从诉讼参与的阶段看,当事人诉讼不能或者不敢起诉的问题贯穿于诉讼全过程,应当根据当事人支持起诉事由消存的情况,由检察机关决定是否支持二审、再审、强制执行,以实现支持起诉的立法精神。另外,鉴于现有的支持起诉的概念受限于“起诉”,已经无法涵盖其内涵与价值,建议修改《民事诉讼法》中的“支持起诉原则”为“支持诉讼原则”,从逻辑上彻底解决相应制度构建的概念困扰。

    Abstract:

    Procuratorate supporting litigation refers to a mechanism whereby, when a subject whose civil rights and interests have been infringed finds it difficult to effectively participate in civil litigation due to fear or insufficient litigation capacity, procuratorial organs support them in initiating civil litigation to safeguard their rights and interests. In recent years, procuratorate supporting litigation has been continuously explored and promoted in civil judicial practice, but relevant controversy has not ceased.The main points of contention are the necessity of procuratorate supporting litigation, the clarity of the case scope, the propriety of participation in court proceedings, and the connection with other procedures.These are also the core issues of building a system of procuratorate supporting litigation. At present, the academic community mainly examines the system from the perspective of procedural justice in civil litigation, questioning whether it disrupts the isosceles triangle structure of litigation, affects the principle of party disposal, and impacts judicial trials. They hold that procuratorate supporting litigation should be restrained, or even eliminated. However, it is insufficient to evaluate the system from this single perspective, instead, it should be discussed in the context of the overall civil litigation model and the reality of civil judicial operations. From the perspective of necessity and propriety, China’s civil litigation follows the adversarial litigation model, where the court is in a passive position and the parties bear the obligations of investigation, evidence collection, proof, and making litigation requests. This makes it difficult for parties with insufficient litigation capacity and fear of litigation to exercise their right to sue. Procuratorate supporting litigation can achieve substantial equality in the right to sue, demonstrate judicial authority and justice, maintain the legal order, and is a necessary supplement to the passive judicial model. As for the scope of cases for procuratorate supporting litigation, the current legislation is rather vague.There are issues with procuratorate supporting litigation in public interest litigation cases, such as, wide range, strong professionalism, and academic doubts about the procuratorate’s duties. Branches of law should be improved to clear the legal standards for initiating public interest litigation, and a legal assessment mechanism involving the people should be introduced to address the doubts. In private interest litigation, to solve the issues of unclear standards for supporting litigation and vague positioning of procuratorial organs, it is proposed that the criteria of supporting litigation should include weak litigation capacity, fear of litigation, significant impact on local governance, and assessment mechanisms. Regarding the participation method of procuratorial organs, the academic community is wary of procuratorate supervisory power and questions the feasibility of procuratorate participation. However, from the perspective of theory and judicial practice,supporting litigation does not disrupt the isosceles triangle structure. Procuratorate participation helps to clarify the facts and improve the efficiency of the trial, so the procuratorate should be granted the right to participate in court proceedings. From the stages of participation in litigation, the parties’ inability to litigate runs throughout the entire litigation process. The procuratorate should decide whether to support the second instance, retrial, and for forced execution based on the existence of the reasons for supporting litigation, to realize the legislative spirit of supporting litigation. Given that the existing concept of supporting litigation is limited to filing and cannot encompass its connotation and value, it is suggested to amend the principle of supporting for filing a lawsuit in the Civil Procedure Law to the principle of supporting litigation,so as to completely solve the conceptual confusion of the corresponding system construction from a logical perspective.

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齐蕴博.检察机关支持起诉的核心问题与逻辑思辨——以构建“支持诉讼”制度为导向的分析与优化[J].重庆大学学报社会科学版,2025,31(4):195-207. DOI:10.11835/j. issn.1008-5831. fx.2025.01.001

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