【作者】 刘宁；

【导师】 伊士国； 卢艳芬；

【作者基本信息】 河北大学 ， 法律（非法学）（专业学位）， 2023， 硕士

【摘要】 监察体制改革已历经五年,各级监察委员会依据相关监察法律法规赋予的职能和措施开展监察调查工作,实现了对公职人员监察全覆盖,国家相继出台《监察官法》、《监察法实施条例》、《纪检监察机关派驻机构工作规则》等多项配套法律法规,惩治腐败力度不断加强,治理腐败效能得到有效提高。然而,在深化监察体制改革进程中,监察委员会的调查权运行依然面临新形势、新任务,需要进行实证分析和对策研究。监察委员会整合了党的纪律检查委员会、检察机关原反贪污贿赂机构、原行政监察机构,依法对监察对象的职务违法和职务犯罪行为开展调查。不过,监察委员会调查权在具有一般调查权力的基本属性的基础上,还具有政治性、复合性,与纪委审查权、刑事侦查权、行政调查权存在质的区别。调查程序既有初核、立案等基础调查程序,还有职务犯罪调查中移送审查起诉、互涉案件管辖等与刑事诉讼衔接的程序。派驻监察机构作为监察委员会的“触角”,依据监察委员会的授权独立或者与监察委员会协同开展调查。在法治、独立、程序公正、人权保障、权力制约等调查权的运行原则下,在把握调查权的特殊属性下,本文通过认真梳理归纳监察委员会调查权运行程序,发现调查权运行中依然面临诸多困境。首先,《监察法实施条例》虽然对调查措施的内控机制做了进一步优化,但调查措施的内控机制仍存在调查措施的控制规范有待细化,部分调查措施的决定主体不明确,缺乏留置的解除条件和留置必要性审查的问题;其次,监察委员会在认真借鉴公安机关成熟的侦查办案机制和丰富刑事侦查经验的同时,与公安机关协作配合办理互涉案件时在案件侦办和协作程序方面仍然面临法律和现实困境;第三,检察机关“提前介入”监察调查工作时,由于双方对“提前介入”的条件“吃不透”、“把不准”,导致检察机关难以发挥自身优势和介入作用;第四,监察机关的内设监督部门和外部来自检察机关的制约发挥力量有限,导致二者在调查权运行中的难以起到充分的监督作用。监察委员会的设立初衷本就是预防和惩治腐败,防止公权力滥用,“将公权力牢牢关在制度的笼子里”,因此,监察委员会的调查权本身更不应该例外。本篇文章立足于《监察法》、《监察法实施条例》等法律法规和相关规范性文件,以防止监察委员会滥用调查权力以及保障被调查人的合法权益为初衷,借鉴党委纪律审查、公安机关刑事侦查、原检察机关反贪污渎职机构职务犯罪侦查、原行政监察调查等有效经验,并通过深入研究和探索,从健全监察调查措施实施的程序控制机制、构建“监-警”合作新机制、规范和引导检察机关提前介入监察调查、有效发挥监察委员会内部监督部门和外部检察机关制约力量四个方面,对推进监察工作法治化、规范化建设提出了可行性较强的理论和实践探索路径。更多还原

【Abstract】 Over the past five years since the reform of the supervision system,supervision commissions at all levels have carried out supervision and investigation work in accordance with the functions and measures entrusted by relevant supervision laws and regulations,achieving full coverage of supervision of public employees,and a number of supporting laws and regulations,such as the Law on Supervision Officials,the Regulations for the Implementation of the Supervision Law,and the Rules for the Work of Institutions Assigned to Discipline Inspection and Supervision Organs,have been promulgated one after another,and the intensity of punishing corruption has been continuously strengthened,and the efficiency of controlling corruption has been effectively improved.However,in the process of deepening the reform of the supervision system,the supervision commission still faces a new situation and new tasks,and empirical analysis and countermeasure research are required.The Supervision Commission integrates the Party’s Discipline Inspection Commission,the former anti-corruption and bribery agency of the procuratorial organ,and the former administrative supervision agency to investigate violations and crimes committed in the duties of the targets of supervision in accordance with the law.However,the investigation power not only has the basic attributes of general investigation power,but also has a political and complex nature,which is qualitatively different from the review power,criminal investigation power,and administrative investigation power of the Discipline Inspection Commission.Investigation procedures include basic investigation procedures such as preliminary examination and case filing,as well as procedures for linking with criminal proceedings,such as transferring for review and prosecution in the investigation of job-related crimes,and mutual involvement in case jurisdiction.Dispatch supervision bodies to serve as "tentacles" of the Supervision Commission,and carry out investigations independently or in coordination with the Supervision Commission in accordance with the authorization of the Supervision Commission.Under the operating principles of investigative power,such as rule of law,independence,procedural fairness,human rights protection,and power constraints,and under the special attributes of investigative power,this paper carefully sorts out and summarizes the operating procedures,and finds that there are still many difficulties in the operation of the investigative power.First,although the internal control mechanism of investigation measures has been further optimized in the Regulations for the Implementation of the Supervision Law,the internal control mechanism of investigation measures still has problems such as the control norms of investigation measures that need to be refined,the subject of decisions on some investigation measures is not clear,and there is a lack of conditions for lifting lien measure and a review of the necessity of lien measure.Second,while conscientiously learning from the public security organs’ mature investigation and case-handling mechanisms and rich experience in criminal investigation,the Supervision Commission still faces legal and practical difficulties when coordinating and cooperating with the public security organs in handling cases involving each other;Third,when the procuratorial organs "intervene" in the supervision and investigation work in advance,it is difficult for the procuratorial organs to give play to their own advantages and intervention role because the two sides are "inexhaustible" and "inaccurate" about the conditions for "early intervention";Fourth,the internal supervision department of the supervision organ and the external restraint from the procuratorial organ have limited strength,making it difficult for the two to play a full supervisory role in the operation of the investigation power.The original intention of the establishment of the Supervision Commission was to prevent and punish corruption,prevent the abuse of public power,and "firmly lock public power in the cage of the system",and the investigation power of the Supervision Commission itself should not be an exception.Based on laws and regulations such as the Supervision Law and the Regulations for the Implementation of the Supervision Law,this article aims to prevent the Supervision Commission from abusing its investigative power and protect the legitimate rights and interests of the persons under investigation,draws on the effective experience of the disciplinary review of the Party Committee,the criminal investigation of the public security organ,the investigation of job-related crimes by the anti-corruption and dereliction of duty organs of the former procuratorial organs,and the original administrative supervision and investigation.Standardizing and guiding procuratorial organs to intervene in supervision and investigation in advance,and effectively bringing into play the internal supervision departments of the Supervision Commission and the restraining power of external procuratorial organs,put forward a feasible theoretical and practical exploration path for promoting the construction of the rule of law and standardization of supervision work.更多还原