行政公益诉讼诉前检察建议制度定位初探

2017年6月，检察机关提起公益诉讼制度经过两年多试点探索正式建立。目前，检察机关办理的绝大多数公益诉讼案件为行政公益诉讼案件，其中绝大多数是通过诉前程序也就是检察建议方式解决的。因此，有必要从行政公益诉讼以及诉前程序当中选择将诉前检察建议作为独立的对象进行研究。行政公益诉讼诉前检察建议本质在于对行政救济程序的启动权，与诉讼程序启动司法救济相对应。应当把这一类型检察建议定位于诉前程序的核心内容，归属于行政公益诉讼的一个程序要素而非仅仅是一种行政检察监督的方式。在此前提下对检察理论进行重构并细化完善案件实体裁量标准。

Preliminary Research on Orientation of Prosecutorial Suggestions before Administrative Public Interest Litigation

Since the procuratorial participation in public interest litigation was formally established by legislation on June, 2017, a great number of law cases have made a great impact on this society, the majority of which are settled through procuratorial suggestions before litigation. Therefore, it is necessary to have a research on the Procuratorial Suggestion before Litigation separately. The essence of the Procuratorial Suggestion before Litigation is the chance to initiate the administrative relief procedure, just like the Initiation of judicial relief in litigation proceedings. It should be positioned at the heart of the Procedures before Litigation and attributed to a procedural element of administrative public interest litigation rather than merely a form of administrative prosecutorial supervision. After that, we should reconstruct the procuratorial theory and refine the standard of case entity discretion.