子长县人民检察院“捕诉一体”实务浅析

　　当下“以审判为中心”的诉讼制度改革，要求检察机关尽快适应“捕诉一体”的办案模式，本文以子长县人民检察院为例，立足检察实践，提出完善“捕诉一体”办案模式的合理建议，供司法实务者参考，如有不妥，敬请批评指正。

　　一、完善“捕诉一体”办案模式

　　捕诉一体办案，是指检察机关对本院管辖的同一刑事案件的适时介入、审查逮捕、延长羁押期限审查、审查起诉、诉讼监督等办案工作，原则上由同一办案部门的同一承办人办理，另有规定的除外。捕诉一体大大提升了办案效率，对于缓解基层检察机关“案多人少”的矛盾有着重大的意义，但在我国的司法实践中仍然存在一些问题，需要继续完善。

　　（一）捕诉一体的实践难题

　　1、系统配置有待完善。捕诉一体办案模式的重大变革，对检察机关统一业务应用系统提出了更高的要求。业务部门与案管、技术如何分工配合、检察官公诉和批捕的案件如何配置为同一人、案件分配规则如何制定、绩效考核时办案量如何核算，都成为亟待解决的问题。

　　2、办案模式有待适应。捕诉一体的办案模式启动后，原承办公诉业务的检察官和原承办侦监业务的检察官都需要一个学习、落实的过程。但是案件具有时限性，绩效考评追求结案率，之前的案件未办结，短期内又要办理大量新类型的案件，工作量激增。

　　3、思想建设有待加强。刑事检察部入额检察官需要同时办理批捕和公诉案件，工作任务重、强度大，普遍存在工作压力过大的问题。被录取或被选调的事业编人员长期和政法专项编制人员干着同样繁重的工作，积累了办案经验，对业务流程也有着相当的熟悉度，有些通过自己的努力拿到了司法资格证书。但是受年龄限制无法参加公务员录用考试，受身份限制又无法参加公务员遴选，因为身份、编制的问题无法任命检察官，晋升途径被堵死，还得不到车补和绩效工资，必然存在一定的消极情绪。如何解决不公平的待遇，做好事业编人员的思想安抚工作，化解检察机关内部的矛盾，同样是检察机关要面临的重要任务。

　　4、业务素质有待提升。捕诉一体的办案模式需要办案人员熟悉侦监、公诉业务技能，对业务水平提出了更高要求，造成有的办案人员在第一时间突然转换角色的办案压力。而检察机关之前“捕诉分离”的办案模式，使得公诉人员和侦监人员并不熟悉彼此的业务流程，原侦监部门的检察官要在短时间内熟悉审查报告的梳理、出庭应诉、审判监督等工作流程，原公诉部门的检察官可能会将批捕的证据标准和起诉的证据标准混同。

　　    5、内部监督有待加强。检察机关捕诉分离时，两个部门可以相互监督，“谁批捕谁起诉”会弱化内部监督。检察官个体认识能力具有局限性，办案水平有差异，因疏忽、自信或对法律法规的理解有偏差而在批捕阶段出错后，会在起诉阶段继续出错。检察官在批捕阶段已经形成犯罪嫌疑人有罪的结论，会在审查起诉中陷入先入为主的思维定势，不利于保障案件质量。      

　　（二）捕诉一体的完善机制                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                   

　　1、完善系统配置。刑事检察部负责人应及时与相关部门沟通，确定符合该院实际的系统配置方案。子长县人民检察院于2018年8月1日完成了“捕诉一体”的系统配置。业务部门提前与技术部门、案管部门沟通，取得了技术支持。统一业务系统在分配案件时改变之前的手动分案，按照预先设定的承办人名单的顺序,自动将案件分配给各承办人,实现自动分案的模式。分配到案件的检察官无特殊情况批捕和公诉由同一人办理，案件数量的分配保证入额的院领导、部门负责人办理的案件达到司法体制改革的数量及比例要求，保证办案程序的完备。

　　2、做好过渡衔接。在过渡期间，采取“双规制”办理案件，已受理移送案件，仍按照之前模式办理，新受理案件，如无特殊情况（重大疑难复杂案件由办案组共同办理），一般应当由一个检察官负责全程办理到底。给员额检察官配备熟悉相关业务的助理，检察官负责全程把控案件，辅助人员做文书草拟、案卷装订等辅助工作，确保捕诉一体改革工作平稳有序展开。

　　3、做好思想工作。对一线办案干警实行定期心理疏导，招录聘用制书记员,解决检察辅助人员不足的现状。协调编制部门，通过内部考试将事业编转化为参公事业编制，给予参加遴选的机会，拓宽其职业成长空间，在工资待遇上参考岗位和绩效，缩小工资差距，充分调动事业编人员的工作积极性。丰富干警的文体生活，如设立书法练习室、规划运动场地、举办登山比赛等，有效缓解检察工作压力。

　　4、提升业务素质。为更好的完成侦查监督与公诉工作，检察官一要熟悉办案系统，推进智慧检务建设；二要多参加专题研讨，优化知识结构；三要加强专业知识的培训学习，提升入额检察官的专业化水平。

　　5、加强内部监督。强化公安机关的复议、复核权，增加听取律师、被害人、证人意见，增强外部监督。办案责任终身制使得案件一旦出现任何问题，都会追究检察官的责任，对检察官权力滥用是个有力的制约。通过建议执行检察部门的羁押必要性审查、检察官联席会议讨论、听证审查、纪检部门的监督、案管管理部门的评查等多重方式强化内部监督制约。

　　（三）捕诉一体的实践意义

　　1、提升办案效率。捕诉分离时每一起刑事案件都需要经过侦查监督和公诉两名检察官分别审查，需要重复阅卷，制作法律文书，提请审批，占用大量司法资源。捕诉一体后，承办人在批捕阶段对案情和证据情况已经有了全局性的把握，大大节省了后续的审查起诉工作时间。自2018年8月1日起运行“捕诉一体”机制，截止至2018年12月20日，子长县人民检察院办理批捕案件57件65人、公诉案件114件 130人，批捕案件平均办案期限5.66天，同比缩短7.8%，公诉案件平均办案期限28.56天，同比缩短 16.3%。实践证明，捕诉一体的办案模式能使得办案效率得到极大的提升。

　　2、提高案件质量。“捕诉一体”后，承办人从接触案件之初就有全面的案件质量意识，会审慎地以公诉案件的标准进行衡量。检察机关积极提前介入，引导侦查机关及时、准确地收集、固定证据，减少“勉强起诉”的可能，一定程度上缓解了批捕“绑架”公诉的现象。在审查起诉阶段，检察官不会降低公诉案件的证据标准来承担无罪的风险，会审查批捕阶段缺少的证据是否补充到位、侦查监督事项是否纠正和反馈，有利于监督效果的提升。还可以提高移送案件质量，降低公诉风险，避免同一机关对同一事实因认识不一致而作出不同决定的尴尬。

　　 3、加强队伍建设。捕诉一体会有效提升入额检察官的办案水平，司法队伍逐渐专业化。老干警对新入额的年轻检察官进行传帮带，传授其丰富的办案经验，年轻干警有较强的适应能力和创新能力，能提高检察官队伍的工作积极性，增强检察团队的凝聚力。 

　　在“捕诉一体”的改革背景下，检察机关作为国家法律监督机关，应当强化并体现其定位。落脚于刑事诉讼环节，检察机关将在诉讼中继续完善“捕诉一体”的办案模式，并充分发挥其“审前过滤”的功能，提升诉讼效率、加强诉讼监督。