多維“公共利益”結構下我國民事公益訴訟的體系優化

我國民事公益訴訟在社會治理領域迅速發展，取得了顯著成效，但也暴露出多重起訴主體錯綜疊加、制度設計與程序革新脫節、檢察機關職能協調困難等問題。究其原因，我國公益訴訟制度主要依託各單行法零散發展，且對“公共利益”的外延和內涵缺乏統一梳理，導致訴訟主體與具體程序之間缺乏有序銜接。破解體系困境，須從“公共利益”的多維結構入手，提出基於個人—集體利益平衡的理論框架，將公共利益劃分為四類，集合性公益、直接純粹性公益、間接純粹性公益和國家利益。基於公益訴訟特性，應將集合性公益排除出公益訴訟，納入以《證券法》第95條為藍本加以完善的代表人訴訟制度。公益訴訟主要調整直接、間接純粹性公益與國家利益。公益訴訟應與多維公共利益結構對接，明確社會組織、檢察機關及行政機關的起訴主體職責，並完善訴前公告程序、磋商與和解制度、懲罰性賠償適用等內容，解決我國民事公益訴訟體系錯亂下的程序齟齬。

China's civil public interest litigation (PIL) has expanded rapidly in the sphere of social governance and achieved notable results, but it has also exposed problems such as overlapping and intertwined plaintiff entities, a disconnect between institutional design and procedural innovation, and coordination challenges for the procuratorate's functions. The root cause is that PIL has developed piecemeal under scattered sectoral statutes, without a unified account of the scope and substance of“public interest,”leading to poor alignment between qualified plaintiffs and concrete procedures. To resolve these systemic difficulties, this contribution starts from the multidimensional structure of public interest and proposes a framework that balances individual and collective interests, dividing public interest into four categories: collective/aggregate public interest, direct pure public interest, indirect pure public interest, and state interest. Given the features of PIL, collective/aggregate public interest should be excluded from PIL and incorporated into the representative litigation regime modeled on and refined from Article 95 of the Securities Law, while PIL should primarily govern direct and indirect pure public interests and state interests. PIL should be aligned with this multidimensional structure by clarifying the standing and responsibilities of relevant social organizations, procuratorates, and administrative agencies, and by improving the pre-action public notice, consultation and settlement mechanisms, and the application of punitive damages, thereby addressing procedural frictions arising from the current disorderly civil PIL framework.