cciia.org.cn 2024-11-18 8:11:06 正義網
最高人民檢察院發布典(dian)(dian)型案(an)(an)例(li),既(ji)是(shi)對檢察機關(guan)(guan)(guan)在特定案(an)(an)件(jian)(jian)(jian)辦(ban)理中(zhong)經驗做法的(de)展(zhan)現,也(ye)是(shi)對相關(guan)(guan)(guan)辦(ban)案(an)(an)工作的(de)階段(duan)性總結。近年(nian)(nian)來,檢察機關(guan)(guan)(guan)充分發揮檢察公益訴訟(song)職能,開(kai)展(zhan)了案(an)(an)件(jian)(jian)(jian)類型豐富、保(bao)(bao)護對象多(duo)樣(yang)的(de)生(sheng)(sheng)物多(duo)樣(yang)性保(bao)(bao)護公益訴訟(song)實(shi)踐。最高檢于2021年(nian)(nian)10月、2023年(nian)(nian)12月,發布了兩批次(ci)共25件(jian)(jian)(jian)生(sheng)(sheng)物多(duo)樣(yang)性保(bao)(bao)護檢察公益訴訟(song)典(dian)(dian)型案(an)(an)例(li)。對這25件(jian)(jian)(jian)典(dian)(dian)型案(an)(an)例(li)進行梳理分析,可勾勒出生(sheng)(sheng)物多(duo)樣(yang)性保(bao)(bao)護領(ling)域檢察公益訴訟(song)發展(zhan)之實(shi)景,亦(yi)可展(zhan)望未(wei)來發展(zhan)之愿(yuan)景。
典型案例之經驗總結
保(bao)護(hu)對(dui)象上重(zhong)點(dian)明確(que)。兩批次案例(li)推(tui)進保(bao)護(hu)的(de)物(wu)(wu)(wu)(wu)(wu)(wu)種(zhong)(zhong)(zhong)、區(qu)域(yu),推(tui)進解(jie)決的(de)損(sun)害或風(feng)險問題(ti),均系生(sheng)(sheng)(sheng)物(wu)(wu)(wu)(wu)(wu)(wu)多樣(yang)性保(bao)護(hu)工作的(de)重(zhong)點(dian)。一是(shi)(shi)關注重(zhong)要(yao)物(wu)(wu)(wu)(wu)(wu)(wu)種(zhong)(zhong)(zhong)的(de)強化保(bao)護(hu)。多件(jian)(jian)案例(li)所涉動(dong)(dong)植(zhi)(zhi)物(wu)(wu)(wu)(wu)(wu)(wu)物(wu)(wu)(wu)(wu)(wu)(wu)種(zhong)(zhong)(zhong)被納入國家重(zhong)點(dian)保(bao)護(hu)野(ye)(ye)(ye)生(sheng)(sheng)(sheng)動(dong)(dong)植(zhi)(zhi)物(wu)(wu)(wu)(wu)(wu)(wu)名(ming)錄,個別物(wu)(wu)(wu)(wu)(wu)(wu)種(zhong)(zhong)(zhong)如“明月(yue)山野(ye)(ye)(ye)豌(wan)豆”,雖未被列入名(ming)錄,但(dan)符合世界自然(ran)保(bao)護(hu)聯盟對(dui)瀕(bin)危物(wu)(wu)(wu)(wu)(wu)(wu)種(zhong)(zhong)(zhong)等(deng)(deng)級劃(hua)分(fen)的(de)標準。多件(jian)(jian)案例(li)提到針對(dui)分(fen)布具有區(qu)域(yu)特征,且對(dui)當地生(sheng)(sheng)(sheng)態保(bao)護(hu)和物(wu)(wu)(wu)(wu)(wu)(wu)種(zhong)(zhong)(zhong)延續具有重(zhong)要(yao)意義的(de)動(dong)(dong)植(zhi)(zhi)物(wu)(wu)(wu)(wu)(wu)(wu)種(zhong)(zhong)(zhong)群(qun)保(bao)護(hu),如對(dui)中(zhong)華(hua)蜜蜂、野(ye)(ye)(ye)生(sheng)(sheng)(sheng)豬血木種(zhong)(zhong)(zhong)群(qun)的(de)保(bao)護(hu)。二是(shi)(shi)關注重(zhong)要(yao)區(qu)域(yu)的(de)環境(jing)改善,尤(you)其關注對(dui)自然(ran)保(bao)護(hu)區(qu)的(de)保(bao)護(hu)。多件(jian)(jian)案例(li)涉及(ji)(ji)保(bao)護(hu)區(qu)與生(sheng)(sheng)(sheng)活區(qu)物(wu)(wu)(wu)(wu)(wu)(wu)理隔斷(duan)及(ji)(ji)生(sheng)(sheng)(sheng)活垃圾、養(yang)殖業(ye)等(deng)(deng)污(wu)染(ran)整(zheng)治。三是(shi)(shi)關注重(zhong)要(yao)問題(ti)的(de)防(fang)范處置。25件(jian)(jian)案例(li)所涉非(fei)法(fa)采伐野(ye)(ye)(ye)生(sheng)(sheng)(sheng)植(zhi)(zhi)物(wu)(wu)(wu)(wu)(wu)(wu)、獵捕捕撈(lao)野(ye)(ye)(ye)生(sheng)(sheng)(sheng)動(dong)(dong)物(wu)(wu)(wu)(wu)(wu)(wu)和水生(sheng)(sheng)(sheng)生(sheng)(sheng)(sheng)物(wu)(wu)(wu)(wu)(wu)(wu),非(fei)法(fa)收購(gou)、出售珍貴(gui)、瀕(bin)危野(ye)(ye)(ye)生(sheng)(sheng)(sheng)動(dong)(dong)植(zhi)(zhi)物(wu)(wu)(wu)(wu)(wu)(wu)及(ji)(ji)其制品(pin),城(cheng)市建設、養(yang)殖業(ye)經營等(deng)(deng)活動(dong)(dong)中(zhong)破(po)壞野(ye)(ye)(ye)生(sheng)(sheng)(sheng)動(dong)(dong)植(zhi)(zhi)物(wu)(wu)(wu)(wu)(wu)(wu)及(ji)(ji)其棲(qi)息地,外來物(wu)(wu)(wu)(wu)(wu)(wu)種(zhong)(zhong)(zhong)入侵,古樹(shu)名(ming)木等(deng)(deng)保(bao)護(hu)措施(shi)不足等(deng)(deng),均是(shi)(shi)現階段生(sheng)(sheng)(sheng)物(wu)(wu)(wu)(wu)(wu)(wu)多樣(yang)性保(bao)護(hu)重(zhong)點(dian)問題(ti)。
辦案(an)(an)(an)方(fang)式(shi)上多(duo)措并(bing)舉。一(yi)是兼顧恢(hui)(hui)復性(xing)司(si)法與(yu)預防(fang)性(xing)司(si)法。如“生(sheng)(sheng)態(tai)環境服務功(gong)能(neng)損失”“生(sheng)(sheng)態(tai)環境損害修復費(fei)”“異地修復”等關(guan)鍵(jian)詞(ci)(ci),均體(ti)現(xian)了檢(jian)(jian)察公益訴訟的(de)恢(hui)(hui)復性(xing)司(si)法功(gong)能(neng)。同(tong)時,部(bu)(bu)分(fen)案(an)(an)(an)例通(tong)過(guo)推(tui)動(dong)(dong)(dong)政府變更(geng)建(jian)設規劃等,實現(xian)了生(sheng)(sheng)物(wu)多(duo)樣(yang)性(xing)損害之(zhi)預防(fang)。二(er)是辦案(an)(an)(an)強(qiang)調多(duo)方(fang)協(xie)作和社(she)會參(can)與(yu)。如“跨區域(yu)司(si)法協(xie)作”“生(sheng)(sheng)態(tai)修復責任銜接認(ren)罪認(ren)罰從寬”“生(sheng)(sheng)態(tai)檢(jian)(jian)察+公益訴訟”“專家評估論證(zheng)”“人民監督員(yuan)”“公開聽證(zheng)”等關(guan)鍵(jian)詞(ci)(ci),從不同(tong)側面(mian)體(ti)現(xian)了檢(jian)(jian)察公益訴訟辦案(an)(an)(an)中(zhong)的(de)多(duo)方(fang)參(can)與(yu)。三是注重以個案(an)(an)(an)辦理(li)推(tui)動(dong)(dong)(dong)系(xi)統(tong)治(zhi)(zhi)(zhi)(zhi)理(li)。如2021年(nian)發(fa)布(bu)的(de)14件典型案(an)(an)(an)例關(guan)鍵(jian)詞(ci)(ci)包括“社(she)會治(zhi)(zhi)(zhi)(zhi)理(li)”“‘社(she)會—行政—司(si)法’共(gong)(gong)治(zhi)(zhi)(zhi)(zhi)”“長江(jiang)大保護”等,2023年(nian)發(fa)布(bu)的(de)11件典型案(an)(an)(an)例關(guan)鍵(jian)詞(ci)(ci)包括“系(xi)統(tong)治(zhi)(zhi)(zhi)(zhi)理(li)”“專題報告+檢(jian)(jian)察建(jian)議”“法治(zhi)(zhi)(zhi)(zhi)協(xie)同(tong)”等。推(tui)動(dong)(dong)(dong)系(xi)統(tong)治(zhi)(zhi)(zhi)(zhi)理(li)的(de)工(gong)作舉措包括開展專項監督,與(yu)有關(guan)部(bu)(bu)門(men)加強(qiang)溝通(tong)達成共(gong)(gong)識,提出社(she)會治(zhi)(zhi)(zhi)(zhi)理(li)檢(jian)(jian)察建(jian)議、調研報告或立法建(jian)議,開展普法宣(xuan)傳等。
案(an)件效果上突出(chu)治理。兩批次案(an)例(li)取得了較好的系統治理成效,例(li)如促(cu)進國家級自然保(bao)(bao)護區生(sheng)態環(huan)境(jing)及(ji)生(sheng)物多樣性的綜合保(bao)(bao)護,推動完善地方立(li)法(fa),促(cu)進地方政(zheng)府(fu)建立(li)起(qi)部門(men)協(xie)作、社會共治的長效保(bao)(bao)護機制,提升社會公眾(zhong)的公益法(fa)治保(bao)(bao)護理念和能力(li)等。
典型案例對比分析
生(sheng)物(wu)多樣(yang)性(xing)保(bao)護(hu)行(xing)(xing)政履職作(zuo)用發揮顯著。2021年發布的14件(jian)典(dian)型案例(li)(li)包括8件(jian)行(xing)(xing)政公(gong)益(yi)訴(su)(su)訟(song)(song)案例(li)(li)、6件(jian)民(min)事(shi)公(gong)益(yi)訴(su)(su)訟(song)(song)案例(li)(li),民(min)事(shi)、行(xing)(xing)政公(gong)益(yi)訴(su)(su)訟(song)(song)案例(li)(li)數量相對均衡;2023年發布的11件(jian)典(dian)型案例(li)(li)僅1件(jian)民(min)事(shi)公(gong)益(yi)訴(su)(su)訟(song)(song)案例(li)(li),其余均為行(xing)(xing)政公(gong)益(yi)訴(su)(su)訟(song)(song)案例(li)(li)。在筆者(zhe)看來(lai),這一(yi)變化體現了生(sheng)物(wu)多樣(yang)性(xing)保(bao)護(hu)檢(jian)察公(gong)益(yi)訴(su)(su)訟(song)(song)發展中(zhong),行(xing)(xing)政公(gong)益(yi)訴(su)(su)訟(song)(song)發揮著重(zhong)要作(zuo)用。
廣泛深(shen)入(ru)發(fa)掘生物(wu)(wu)多樣性保(bao)護(hu)(hu)新問題(ti)(ti)(ti)。兩批次案(an)例覆(fu)蓋了較豐富的(de)(de)生物(wu)(wu)多樣性保(bao)護(hu)(hu)問題(ti)(ti)(ti),但(dan)2023年案(an)例關注(zhu)對象有所變化。一是所涉問題(ti)(ti)(ti)更加廣泛。如對種(zhong)(zhong)質資源保(bao)護(hu)(hu)的(de)(de)關注(zhu)、對外來物(wu)(wu)種(zhong)(zhong)入(ru)侵問題(ti)(ti)(ti)從推動常規性清除到(dao)關注(zhu)入(ru)侵過程中(zhong)的(de)(de)運輸問題(ti)(ti)(ti)等。二是所涉問題(ti)(ti)(ti)更加回應(ying)中(zhong)心工作和社會關切。如從服務(wu)保(bao)障(zhang)旅游經濟發(fa)展(zhan)、糧食(shi)安全等角度出發(fa),推動特定物(wu)(wu)種(zhong)(zhong)、種(zhong)(zhong)群保(bao)護(hu)(hu)。
更(geng)加(jia)注重引(yin)導(dao)社(she)會公(gong)眾有(you)序參(can)與(yu)辦(ban)(ban)(ban)案(an)全過(guo)程。兩(liang)批次案(an)例(li)均提到引(yin)導(dao)社(she)會公(gong)眾參(can)與(yu)辦(ban)(ban)(ban)案(an),2023年案(an)例(li)則更(geng)加(jia)強調(diao)引(yin)導(dao)更(geng)廣泛主體的(de)全過(guo)程參(can)與(yu),如多(duo)件案(an)例(li)提到“益(yi)心為(wei)公(gong)”志(zhi)愿(yuan)者參(can)與(yu)辦(ban)(ban)(ban)案(an),不同案(an)例(li)中(zhong)人(ren)大代(dai)表、政協(xie)委員、人(ren)民監督員及志(zhi)愿(yuan)者通過(guo)參(can)與(yu)線索研(yan)(yan)判、爭議問題研(yan)(yan)討(tao)、現場勘查取證、公(gong)開送達檢察建議、“回頭看”跟(gen)進及提供專業(ye)支持(chi)(chi)等方(fang)式,全流程參(can)與(yu)辦(ban)(ban)(ban)案(an),可見(jian)辦(ban)(ban)(ban)案(an)中(zhong)引(yin)導(dao)社(she)會公(gong)眾參(can)與(yu)工作(zuo)的(de)持(chi)(chi)續發(fa)展。
生物多樣性保護檢察公益訴訟發展之愿景
案(an)件辦理需找(zhao)準(zhun)發力(li)點。一是緊密圍繞中心工(gong)作找(zhao)準(zhun)發力(li)點。如(ru)在推(tui)(tui)動強化(hua)生物多(duo)樣(yang)性(xing)保(bao)護中,同步(bu)推(tui)(tui)動旅游經(jing)濟發展(zhan)、糧食安全(quan)保(bao)障(zhang)等,服(fu)(fu)務保(bao)障(zhang)鄉村(cun)振興;從城(cheng)市、鄉村(cun)生態(tai)安全(quan)保(bao)障(zhang)的角度辦案(an),推(tui)(tui)動城(cheng)鄉生態(tai)屏(ping)障(zhang)建設和(he)保(bao)護,服(fu)(fu)務保(bao)障(zhang)城(cheng)鄉融合發展(zhan);以(yi)國家公園(yuan)和(he)長江黃河流域(yu)(yu)重要(yao)生態(tai)區域(yu)(yu)為(wei)重點辦案(an),服(fu)(fu)務保(bao)障(zhang)國家公園(yuan)建設。二是動態(tai)把握(wo)新型問(wen)題。如(ru)關注外來(lai)入(ru)侵物種進(jin)口、銷售及相(xiang)關產(chan)業中的系(xi)列問(wen)題。三(san)是著重發現立法(fa)、行政監(jian)管和(he)公眾認知中的漏洞和(he)薄弱環節。如(ru)發掘(jue)對尚未納入(ru)名錄但存在較(jiao)嚴重生存風險的野生動植(zhi)物物種保(bao)護,促進(jin)完(wan)善(shan)相(xiang)關名錄、推(tui)(tui)動行政監(jian)管,規范社(she)會行為(wei)、引領社(she)會價值。
突(tu)出預防(fang)性司法理念。要突(tu)出行政公益訴訟檢察的應有作(zuo)用(yong),有效督(du)促行政機關采取措施防(fang)范風險,以民事(shi)公益訴訟為補充,實(shi)現(xian)高質效保護生物多樣性目的。
強化案件辦理的(de)系(xi)統(tong)(tong)治(zhi)理成效。《中國生物(wu)(wu)多(duo)(duo)樣(yang)(yang)性(xing)保(bao)(bao)護戰略與(yu)行(xing)動計劃(2023—2030年)》指出“生物(wu)(wu)多(duo)(duo)樣(yang)(yang)性(xing)保(bao)(bao)護法(fa)(fa)律和(he)政策(ce)體系(xi)仍需(xu)完善,依法(fa)(fa)保(bao)(bao)護和(he)監管力度不強”“參(can)與(yu)和(he)引領全(quan)球生物(wu)(wu)多(duo)(duo)樣(yang)(yang)性(xing)治(zhi)理能力有(you)待繼(ji)續提升”等目前(qian)生物(wu)(wu)多(duo)(duo)樣(yang)(yang)性(xing)保(bao)(bao)護亟須重視的(de)系(xi)統(tong)(tong)治(zhi)理問(wen)題。現階段,有(you)必(bi)要更加注(zhu)重發(fa)揮檢察公益訴訟推動立法(fa)(fa)和(he)政策(ce)完善作用,并注(zhu)重開展(zhan)國際合作。
強(qiang)化多方(fang)協同和社會參(can)與(yu)(yu)。一方(fang)面(mian),進一步(bu)強(qiang)化生物多樣性(xing)(xing)(xing)保護協同履職(zhi),包括檢察機(ji)(ji)(ji)關一體(ti)履職(zhi),以及加強(qiang)檢察機(ji)(ji)(ji)關與(yu)(yu)行政(zheng)機(ji)(ji)(ji)關、審(shen)判機(ji)(ji)(ji)關等的(de)協同。另一方(fang)面(mian),生物多樣性(xing)(xing)(xing)保護是保障(zhang)公(gong)民環境權的(de)應有(you)之義,要求(qiu)公(gong)民等環境權主體(ti)參(can)與(yu)(yu)保護全過程。有(you)必要進一步(bu)從環境權保障(zhang)角度,將(jiang)(jiang)引(yin)導社會公(gong)眾有(you)序參(can)與(yu)(yu)的(de)要求(qiu)貫穿(chuan)辦(ban)案(an)(an)始(shi)終(zhong),逐步(bu)將(jiang)(jiang)具有(you)“典型性(xing)(xing)(xing)”的(de)引(yin)導參(can)與(yu)(yu)舉(ju)措轉變為“常規性(xing)(xing)(xing)”的(de)辦(ban)案(an)(an)程序,將(jiang)(jiang)“有(you)序”參(can)與(yu)(yu)轉變為更(geng)“有(you)效(xiao)”參(can)與(yu)(yu)。
(作(zuo)者單位:四川省成都市人民檢察院、成都市龍泉驛區人民檢察院、邛(qiong)崍市人民檢察院)
日期：2024-11-18 8:11:06 | 關閉 |
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