庆阳市人民检察院督促保护宁县湘乐砖塔行政公益诉讼案

【关键词】

行政公益诉讼诉前程序 文物和文化遗产保护 诉前磋商    

【要 旨】

文物和文化遗产是一个国家的血脉和灵魂，也是全人类的共同财富。检察机关在办理文物和文化遗产保护公益诉讼案件中，灵活采用诉前磋商机制督促行政机关依法履职，推动检察、行政多方联动，实现双赢多赢共赢的良好效果。

【基本案情】

湘乐砖塔位于宁县湘乐镇湘乐桥北台地上，始建于宋代，1963年2月被公布为甘肃省省级文物保护单位，2006年5月被公布为第六批全国重点文物保护单位。2020年8月，省检察院在开展国有文物保护巡查活动中发现，湘乐砖塔周边环境脏乱差，塔基东部形成大坑，威胁塔体安全，遂对该问题进行督办，指令庆阳市检察院立案办理。庆阳市检察院经调查核实，认为宁县文体广电和旅游局（以下简称县文旅局）负有区域内文物保护监督管理职责，应当对危害古建筑安全的情形及时采取保护措施，但其未依法履行监管职责，致使湘乐砖塔存在安全隐患，社会公共利益受到损害。

【调查和督促履职】

庆阳市检察院立案后，通过调查询问、实地勘查、复制材料、走访政府及有关部门、无人机航拍等手段取证发现，湘乐砖塔塔体四周未设置文物保护界桩，塔基东部2米处形成长约35.6米、宽21米、高4.1米的大坑，且未设置“全国重点文物保护单位”保护标志，存在安全隐患。

2020年8月起，庆阳市检察院检察长亲赴现场调查，该市两级检察院多次与宁县县、乡两级政府，国土、文物等部门召开会议进行磋商，共同制定切实可行的保护整改方案。9月27日，县政府指令由湘乐镇政府采用土夯实、碾压的方法，完成塔基东面330㎡的塔基外围垫方工程，预防塔基外围下陷对文物本体造成伤害，同时增设防护围栏，开辟通道用于巡查和维护。随后，省市县三级检察院先后5次实地查看整改情况，文物部门在距离塔基2米处的塔体四周已设置文物保护围栏和重点文物保护碑，宁县县政府投资30余万元对塔基东部的大坑实施了外围垫方工程，消除了威胁塔体安全的隐患，并将古塔纳入当地文化广场建设项目中。

2021年，县文旅局拟逐级向省文物局专项申报湘乐砖塔塔基加固和周边环境治理项目，扩大塔基加固保护范围，彻底改变周边环境脏乱差的现状，消除环境因素对文物本体构成的威胁，待省文物局批复后予以实施。                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                          

【典型意义】

庆阳市地处陕、甘、宁三省（区）交汇处，系华夏早期农耕文明的发祥地，历史文化底蕴丰厚，文物资源丰富。本案中，庆阳市检察机关秉持“诉前解决问题是办案的最佳状态”理念，充分考量和尊重文物部门的履职意愿，积极创新办案模式，灵活运用磋商机制推动文物部门依法全面履行职责，加强与文物部门的协同配合，凝聚检察监督与行政执法合力，增强监督保护实效。