法律保留原则下地方行政处罚的界限设定

Boundaries of Local Legislation Creating Administrative Penalties

行政处罚是由行政主体施行的,维护公共秩序、实现国家调控的重要行政行为。随着行政事务范围的扩张及行政任务的重心从管理行政向给付行政的转变,1996年制定的《行政处罚法》不仅从功能上难以覆盖所有的行政执法领域,其内在立法逻辑亦显现出不足,难以适应新局面下其所应承担的角色,《行政处罚法》修改迫在眉睫。《行政处罚法》应完成"从处罚依据到统领立法"的角色转变。从性质上,此种转变赋予地方在设定行政处罚时具有更多的空间与自由,原有的中央与地方设定行政处罚的界限也需要改变。该界限需从两个方面进行描述:第一,从领域上,与法律保留有关的内容是中央独有的,非保留领域则是中央与地方皆具有立法权,其体现的是内容上允许与禁止的限定方式。第二,地方设立行政处罚需遵从中央规范的指引与约束,体现在具体规则约束与目的约束两方面,符合遵循与创设的内在逻辑。此两方面从不同维度揭示了中央与地方立法的界限,其内在逻辑亦不同。二者相结合能为《行政处罚法》修订与地方参照制定处罚规范提供帮助。

Administrative punishment is an important administrative act carried out by administrative bodies to maintain public order and enforce national regulation.With the expansion of the scope of administrative affairs and the shift of the focus of administrative tasks from management administration to payment administration,the Administrative Punishment Law enacted in 1996 can not cover all areas of administrative law enforcement,and has defects in its inherent legislative logic.It is outdated to some extent,and the revision of the Administrative Punishment Law is imminent.The Administrative Punishment Law should change its role from"punishment"to"governing legislation".In nature,this change would give local authorities more room and freedom in creating administrative penalties.At the same time,the boundaries also need to be revised.This boundary should cover two aspects:first,those related to legal reservation is granted solely to the central government,and those in the non-reserved field to both the central and local governments;second,the establishment of administrative punishment must comply with the guidelines and constraints of the regulations by the central authorities,which cover both specific rule constraints and purpose constraints.The two aspects reveal the limits of central and local legislation from different dimensions,and their different internal logic.The combination of the two provides implications for the revision of the Administrative Punishment Law and references for the formulation of penalties by local authorities.