妇女权益保障领域检察公益诉讼机制的理论基础与实现路径
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D923.8;D926.3;D925

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Theoretical basis and realization path of procuratorial public interest litigation mechanism in the field of women’s rights and interests protection
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    摘要:

    拓展检察公益诉讼受案范围不仅是十九届四中全会的决议内容,也是公益诉讼检察部门近几年工作的重点。《行政诉讼法》《民事诉讼法》规定的检察公益诉讼受案范围集中在涉及国家利益和分散性公共利益的"四大"领域,特定群体权益保障领域不在其列。特定群体权益多属个人利益,常借助行政执法与私益诉讼进行维护。近年来,检察机关办理了大量特定群体权益保障领域内的公益诉讼案件。通过实证分析得知,这类检察公益诉讼多在行政公益诉讼"诉前程序"中或者以制发社会治理检察建议方式结案,即便提起民事公益诉讼也多属代位诉讼而非典型公益诉讼。2021年新修订的《未成年人保护法》规定了"未成年人保护领域的检察公益诉讼条款"。2021年12月提交第十三届全国人大常委会第三十二次会议审议的《妇女权益保障法(修订草案)》也增加了"妇女权益保障领域的检察公益诉讼条款"。为解释特定群体权益保障类检察公益诉讼实践与理论之间的巨大分歧,文章分析了妇女权益在个人权益属性基础之外,对其进行保障还具有社会性、公共性和秩序性的特征。传统法律倾向用已婚妇女、孕期和哺乳期妇女、未婚妇女等以社会属性为标准来划分妇女权益的种类,致使妇女权益必然深植于家庭秩序和社会秩序之中,很难得到充分保障。积极保障妇女权益符合社会主义法治的"社会"属性。当妇女的个体权益受损时往往也存在系统性妇女权益受损的情形,因此对妇女权益保护具有"公共"属性。我国妇女权益保障体系独具特色,相关立法体系较完备,但立法内容的滞后和疏漏在所难免;多元执法体系中的执法协同机制不健全、偏向于预防机制、处置手段缺乏强制性;保障妇女权益的刑事、民事救济机制还需提高质效。综上,文章指出妇女权益保障领域内检察公益诉讼机制嵌入现行多元执法、救济机制具有可行性与必要性。鉴于司法力量的有限性,行政检察(包括公益诉讼检察)力量介入妇女权益保障可分为三种形式。通过研判相关刑事案件,剖析潜在的或已存在的行政违法行为,并采取行政违法行为检察手段进行监督。在刑事手段、行政违法行为检察监督手段、公益诉讼手段之间,应当遵循"刑事优先原则";已造成妇女权益受侵害而未导致社会公共利益受损的案件可以采取行政违法行为检察监督手段;但案件符合公益诉讼成案标准的,方可提起公益诉讼。

    Abstract:

    Expanding the scope of public interest litigation cases is not only the resolution of the Fourth Plenary Session of the 19th CPC Central Committee, but also the key work of public interest litigation by procuratorial departments in recent years. The scope of accepting cases of procuratorial public interest litigation stipulated in Administrative Procedure Law and Civil Procedure Law is concentrated in related fields involving national interests and decentralized public interests. However, the rights and interests of specific groups are mostly personal interests, which are usually remedied by means of private interest litigation. In recent years, the procuratorial organs have handled a large number of public interest litigation cases to protect the rights and interests of specific groups. Through empirical analysis, the article finds that these cases are mainly closed through pre-litigation procedure of administrative public interest litigation or social governance procuratorial proposal, and most of the lawsuits filed are civil subrogation lawsuits. The Law on the Protection of Minors, which was amended in 2021, stipulates the provisions of procuratorial public interest litigation for the protection of minors. The Law on the Protection of Women’s Rights and Interests (Amendment), submitted to the Standing Committee of the National People’s Congress for deliberation in December 2021, also drafts the procuratorial public interest litigation clauses for the protection of women’s rights and interests. In order to resolve the huge differences between practice and theory of procuratorial public interest litigation for specific groups’ rights and interests protection, the article analyzes that, women’s rights and interests are characterized by sociality, public interest and order in addition to their personal attributes. Traditional laws tend to use married women, pregnant and lactating women, unmarried women and so on to regulate women’s rights and interests based on sociality, so that women’s rights and interests needs to be carried out in the family structure and social structure, which is difficult to be fully protected. Actively protecting women’s rights and interests conforms to the "social" nature of socialist rule of law. The "publicity" of women’s rights and interests lies in the fact that when individual women’s rights and interests are damaged, there are often cases of systematic damage to women’s rights and interests. The protection system of women’s rights and interests in China is with characteristics, and the relevant legislative system is complete, but it is hard to avoid the lag and omission of legislation. The law enforcement coordination mechanism is not perfect, the prevention mechanism is preferred, and the disposal means are lack of compulsion. The criminal and civil relief mechanism also needs to be improved. To sum up, the article points out that it is feasible and necessary to embed the procuratorial public interest litigation mechanism into the current diversified law enforcement and relief mechanism in the field of women’s rights and interests protection. In view of the limited judicial power, the intervention of administrative procuratorial power (including procuratorial public interest litigation) in the protection of women’s rights and interests can be divided into three forms. Through the study and judgment of relevant criminal cases, analyzing potential or existing administrative violations, procuratorial supervision of administrative violations should be taken. The principle of criminal priority should be followed between criminal means, means of procuratorial supervision of administrative violations and means of public interest litigation. In cases where women’s rights and interests have been infringed but social and public interests have not been damaged, the means of procuratorial supervision of administrative violations can be adopted. However, if the case meets the standard of public interest litigation, public interest litigation can be filed.

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刘艺.妇女权益保障领域检察公益诉讼机制的理论基础与实现路径[J].重庆大学学报社会科学版,2022,28(2):171-182. DOI:10.11835/j. issn.1008-5831. fx.2022.02.001

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  • 在线发布日期: 2022-04-25
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