行政处罚的概念构造 新《行政处罚法》第2条解释

The Conceptual Structure of Administrative Penalty Interpretation of Article 2 of the New Law on Administrative Penalty

新《行政处罚法》第2条增设了行政处罚的概念条款。该条内含的"减损权益或者增加义务的方式""违反行政管理秩序""惩戒"三项要素,应分别以"不利益性""违法性""报应性"加以归纳和解释。其中,"不利益性"是行政处罚的第一要素。行政处罚的标的是"利益"而非"权利"。利益是价值中立的,本身并不存在合法与非法之分,行政处罚的制裁对象并不必然是合法的。"违法性"是行政处罚的第二要素。在"违法性"判断上,应奉行实质违法性立场。"违法性"决定了"面向合法行为实施的行政强制措施"等同样具有"不利益性"的制裁行为,不是行政处罚。"报应性"是行政处罚的第三要素。行政处罚主要是出于惩戒、打击和报复,而非恢复和预防,这是区分行政处罚与"责令限期改正"等行为不可或缺的标准。

The newly adopted Law on Administrative Penalty has added the concept clause of administrative penalty as Article 2.The three elements contained in this article,"reducing rights and interests or increasing obligations","violation of the administrative order"and"penalty",should be summarized and explained in terms of"non-interest","illegality"and"retribution"respectively.Among them,"non-interest"is the first element of administrative penalty.The object of administrative penalty is"interest"rather than"right".Interest is value-free and there is no legality and illegality in itself,so the object of administrative penalty is not necessarily legal."Illegality"is the second element.In the judgment of"illegality",substantial illegality standard should be adopted."Illegality"determines that"administrative coercive measures for legal acts"and other sanctions with"non-interest"are not administrative penalties."Retribution"is the third element.Administrative penalty is mainly for penalty,sanction and retaliation rather than recovery and prevention,which is an indispensable yardstick to distinguish administrative penalty from"ordering correction within a time limit"and other administrative actions.