中国检察官职业化的困境与出路

发布时间：2018-08-09 07:34

【摘要】：检察官的职业化,是指检察官以行使国家检察权为专门职业,并因此获得相应的职业地位,形成独特的职业意识,掌握专业的职业技能,具备特殊的职业道德。检察官的职业特征表现为：一是检察官属于法律职业,是法律职业共同体不可缺少的组成部分；二是专门从事检察工作,依据宪法行使国家检察权,即法律监督职权和国家公诉权,以区别于法律职业共同体中其他法律职业；三是具备专业的法律知识、法律思维以及运用法律的能力,而这些知识和能力的获得必须经过法律专业训练和一定时间的司法实践；四是具有独立的职业地位,即检察官依法独立行使国家检察权,不受其他个人、团体的干扰；五是具有“忠诚、公正、廉洁、文明”的职业操守；六是自成体系的检察官管理机制。当前,对于检察官职业化,无论是法律学者,还是司法实践者,在其必要性和意义上早已达成了一致的认识：检察官职业化决定着我国司法体制改革进程和法治社会的形成,具有重大的现实意义和历史意义。但是,中国检察官职业化现状并不乐观,面临着诸多困境,主要体现在三个方面：一是对检察官性质的模糊认识,众说纷纭,计有行政官说、准司法官说、双重属性说和法律监督官说。二是检察管理行政化,表现为：检察官级别行政化,即检察官的待遇与级别参照公务员法,套用行政级别,按照从科员级到部级的划分来确定职业地位；人事管理行政化,按照公务员系列对检察官进行管理,招聘、升迁、奖惩、离职、退职等与公务员无异；检察机关内部管理行政化以及按行政习惯安排工作。三是检察工作地方化。体现在：检察工作必须依靠当地党委、政府以及围绕当地党委、政府的中心工作来开展；检察机关要参与地方政府的一些行政性质的工作；检察机关要处理大量的地方政务信息。检察工作地方化的主要原因是,双重领导体制、地方党委和政府决定检察机关的物质保障以及掌握检察机关的人事权。上述三方面的困境阻碍了中国检察官职业化的进程。一方面,中国检察官性质的模糊认识,使得检察官的职业属性目前处于一种争议的状态,检察官职业化找不到一个方向,难以迈出自信的步伐。另一方面,检察管理行政化和检察工作地方化共同作用,冲淡了检察机关法律监督属性,削弱了检察官的职业特征。第三方面,导致检察机关和检察官的主流价值取向偏离本职的要求,价值取向行政色彩浓厚。第四方面,削弱了检察官从业的独立性。检察工作地方化,使得检察院成为了“地方的检察院”,检察官也成为了“地方的检察官”。检察机关在行使检察权以及检察官在办理案件工作中,受制于当地各种利益,同时,检察机关内部管理行政化,使得检察官办案失去了独立性。第五方面,产生了诸多不利于检察官职业化的现实矛盾。例如,检察官精英化和宽泛的准入制度的矛盾、检察官培训的专业性与现实中按普通公务员一般性培训之间的矛盾、检察官独特的职业道德修养与一般公务员道德要求之间的矛盾等等。中国检察官职业化必须找到突破口,走出上述困境,才能进一步向前推进。第一,明确检察机关法律监督属性,结束对检察机关属性的争论,即依照我国宪法的规定明确检察机关的属性是法律监督,相应地,检察官的属性是法律监督官,在此定性基础上,再界定法律监督的涵义和内容：法律监督是指检察机关依法对国家机关及其工作人员在履行公务中法律的执行和适用情况进行监督,以保证国家法律的统一、正确实施,其工作内容包括：查办国家工作人员职务犯罪、批准逮捕犯罪嫌疑人与代表国家起诉被告人、纠正国家机关及其工作人员履行职责过程中的违法行为。第二,建立一体化的检察机关垂直领导组织体系,摆脱地方干扰。在坚持党的领导与人民代表大会监督原则下,实行检察系统垂直领导模式、检察院领导的垂直任免。第三,改革检察官人事和经费管理机制,实现独立的人事权和财政权：严格准入条件,建立检察官统一录用和任用制度；改革检察官的人事管理机制,真正、严格执行《检察官法》,采取分类管理方式来完善检察官人事管理制度,以按期晋升、随职务晋升和择优晋升三种方式晋升检察官,并依据检察官等级来确定检察官的行业地位和待遇；将检察官编制确定权归于检察机关自身,以及设立检察系统财政单列的财政管理机制。第四,完善检察官职业保障制度,包括：可靠的身份地位保障,确保检察官身份不得被随意改变；优越的经济保障,确保检察官收入至少要高于一般的公务员,以促进检察官廉洁勤政、秉公执法,同时吸收和留住优秀人才,提高检察官队伍素质和保持队伍稳定；专业培训保障,以帮助检察官获得和提高职业知识、能力和水平；建立以主诉检察官与主办检察官为主的合法对抗非法指令的办案机制保障,增强检察官的依法自主办案意识。第五,建立体现检察官职业规律要求的检察工作管理体系,引用公共管理理论,在现代信息平台上,构建以绩效管理、质量管理和知识管理为内容的检察管理体系。第六,完善检察官职业约束机制,通过完善检察官职业惩戒制度、加强职业道德自我约束来确保检察官从业活动依法、公正、廉洁。第七,打造具有检察官职业特色的检察文化,将检察官职业化固化为一种文化形态。
[Abstract]:The professionalization of the prosecutor means that the prosecutor takes the state procuratorial power as a special occupation, and thus obtains the corresponding professional status, forms a unique professional consciousness, master professional skills and possess special professional ethics. The professional characteristics of the prosecutor are as follows: first, the prosecutor belongs to the legal profession, and the legal profession community is not The lack of components; two is specialized in procuratorial work, the exercise of state procuratorial power in accordance with the constitution, that is, the power of legal supervision and the power of state prosecution, in order to distinguish from other legal professions in the legal professional community, and the three is the professional legal knowledge, legal thinking and the ability to use law, and these knowledge and abilities must be obtained. Through legal professional training and a certain time of judicial practice, four is independent of professional status, that is, prosecutors independently exercise state procuratorial power according to law, not to be disturbed by other individuals and groups; five is the professional integrity of "loyalty, impartiality, integrity, civilization", and six is a self-made system of prosecutorial management mechanism.
At present, the professionalization of the prosecutor, whether it is the legal scholar or the judicial practitioner, has already reached a consistent understanding in its necessity and significance: the professionalization of the prosecutor determines the process of the reform of the judicial system and the formation of the rule of law in our country, which has great practical and historical significance. However, the status quo of the professionalization of the prosecutor in China is of great significance. Not optimistic, faced with many difficulties, mainly in three aspects: first, the nature of the prosecutor's vague understanding of the nature of the prosecutor, different opinions, the executive officer said, the judge said, the double attribute and the legal supervision officer said. Two is the administration of procuratorial administration, the performance of the procurator level administration, that is, the prosecutor treatment and the level of reference to public affairs Staff law, apply the administrative level, according to the division from the rank of the staff to the ministerial level to determine the professional status; the administration of personnel management, in accordance with the civil service series on the administration of the prosecutor, recruitment, promotion, reward and punishment, leaving, retirement and so on with the civil servants, the internal management of the procuratorial organs and the administrative custom arrangements. Three is the procuratorial work. The procuratorial work must rely on the local Party committee, the government and the central work of the local Party committee and the government; the procuratorial organs should take part in some administrative nature of the local government; the procuratorial organs should deal with a large number of local government information. The main reason for the localization of the procuratorial work is the dual leadership system, The local Party committees and governments decide on the material guarantee of the procuratorial organs and the personnel rights of the procuratorial organs.
The three aspects of the above predicament have hindered the process of the professionalization of Chinese prosecutors. On the one hand, the vague understanding of the nature of the prosecutor in China has made the prosecutor's professional attributes in a state of dispute, and the prosecutor's professionalism can not find a direction, and it is difficult to take a step of confidence. On the other hand, procuratorial administration administration and procuratorial work The common function of the prescription dilutes the legal supervision attribute of the procuratorial organs and weakens the professional characteristics of the prosecutor. In third respects, the mainstream value orientation of the procuratorial organs and prosecutors deviates from the requirements of the duty and the administrative color of the value orientation is strong. In fourth respects, the independence of the prosecutor from the industry is weakened. The procuratorial work is localized and the procuratorate is made. As the "local Procuratorate", the prosecutor has also become the "local prosecutor". Procuratorial organs in the exercise of procuratorial power and the procurator in handling the case work, subject to various local interests, at the same time, the internal administration of the procuratorial organs, making the procuratorial case lost the independence. Fifth aspects, produced a lot of detrimental inspection. For example, the contradiction between the professionalism of the official and the broad access system of the prosecutor, the contradiction between the professionalism of the prosecutor's training and the general public service training in reality, the contradiction between the special professional ethics of the prosecutor and the moral requirements of the general civil servant, etc.
The professionalization of Chinese prosecutors must find a breakthrough and go out of the above predicament to further advance. First, clear the legal supervision attributes of the procuratorial organs and end the debate on the property of the procuratorial organs, that is, the attribute of the procuratorial organs is the legal supervision in accordance with the provisions of the Constitution of our country. Accordingly, the prosecutor's attribute is the legal supervisory officer. On the basis of this, the definition and content of legal supervision are redefined: legal supervision means that the procuratorial organs supervise the implementation and application of the laws of state organs and their staff in the performance of public affairs in accordance with the law so as to ensure the unification of the state laws and the correct implementation of the law. To arrest the suspects and to represent the state to prosecute the accused, and to correct the illegal actions of the state organs and their staff in the process of performing their duties. Second, establish an integrated vertical leadership organization system of the procuratorial organs and get rid of local interference. Under the principle of adhering to the supervision of the party's leadership and the people's representative, the vertical leadership of the procuratorial system is carried out. Model, vertical appointment and removal of procuratorate leaders. Third, reform the personnel and financial management mechanism of prosecutors to achieve independent personnel rights and financial rights: strict access conditions, the establishment of the prosecutor's unified employment and appointment system; reform the prosecutor's personnel management mechanism, truly, strictly implement the "procuratorial law", and adopt classified management to perfect inspection. Inspection of the personnel management system, in order to promote the promotion, promotion and promotion of the three ways of promotion of prosecutors, and according to the grade of prosecutors to determine the status and treatment of the prosecutor; the prosecutor to establish the right to the procuratorial organization itself, and the establishment of the public procuratorial system financial management mechanism. Fourth, perfect procuratorial work. The system of official occupational security, including a reliable status guarantee, ensures that the identity of the prosecutor must not be arbitrarily changed; the superior economic security, to ensure that the prosecutor's income is at least higher than the general public servant, to promote the prosecutor to be honest and diligent, to enforce the law impartially, to absorb and retain the outstanding talents, to improve the quality of the prosecutor's team and to maintain the team Stability and professional training guarantee to help the prosecutor obtain and improve the professional knowledge, ability and level; establish the legal protection of lawfully against illegal instructions with the main prosecutor and the host prosecutor, strengthen the procurator's consciousness of handling the case according to law. Fifth, establish the procuratorial work tube required by the professional law of the present prosecutor The system, citing public management theory, on the modern information platform, constructs the procuratorial management system with the content of performance management, quality management and knowledge management. Sixth, improve the procurator's professional restraint mechanism, improve the professional discipline system of the prosecutor and strengthen the self-restraint of professional ethics to ensure that the procurator's employment activities are legal, fair and cheap. J. seventh, create a procuratorial culture characterized by prosecutors' professional characteristics and solidify the professionalization of prosecutors into a cultural form.
【学位授予单位】：吉林大学
【学位级别】：硕士
【学位授予年份】：2011
【分类号】：D926.3

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