作者：张嘉军
作者介绍：郑州大学法学院教授
出版日期：2025年8月9日
内容提要 当下中国建构的检察机关提起民事公益诉讼后置于其他主体的补充性诉权行使顺位，存在公益诉讼效率低下、造成程序空转、限制公益诉权行使、面临潜在司法风险等问题。刑事法领域的谦抑性原则并非民事公益诉讼诉权行使顺位构建的理论基础。未来中国应以公益诉讼制度建构的本源为逻辑起点，以“行政机关优先模式”为基础，建构“行政机关优先于检察机关和社会组织，检察机关优先于社会组织”的民事公益诉讼诉权行使顺位模式。为确保这一模式的顺畅运行，充分保障各公益诉讼主体的公益诉权，宜取消检察机关诉前公告程序、建立公益诉讼主体诉前通知程序、重塑法院公益诉讼案件审前受理公告程序、改革检察机关支持其他主体提起公益诉讼制度、建构社会组织提起公益诉讼的监管机制等。
关键词 民事公益诉讼 检察公益诉讼 诉权行使顺位
Abstract: The current supplementary sequence of litigation rights exercise in China, which places procuratorial organs after other entities in initiating civil public interest litigation, suffers from issues such as inefficiency in public interest litigation, procedural redundancies, undue restriction of the exercise of public interest litigation rights, and potential judicial risks. The principle of modesty in criminal law does not serve as the theoretical foundation for establishing the sequence of litigation rights exercise in civil public interest litigation. Moving forward, China should return to the institutional origins of public interest litigation as the logical starting point. Building upon the ‘administrative organ priority model’, China shall construct a sequence where ‘administrative organs take precedence over procuratorial organs and social organizations, while procuratorial organs take precedence over social organizations’ for exercising litigation rights in civil public interest litigation. To ensure the smooth operation of this model and fully safeguard the litigation rights of all public interest entities, it is advisable to abolish the pre-litigation announcement procedure for procuratorial organs, establish a pre-litigation notification mechanism for public interest litigation entities, reconstruct the court’s pre-trial case acceptance and announcement procedure for public interest litigation, reform the system whereby procuratorial organs support other entities in initiating public interest litigation, and construct a regulatory mechanism for social organizations to bring public interest lawsuits.