论地方性法规补充设定行政处罚的界限

On the Boundaries and Limitation of Local Regulations to Supplement Administrative Penalty

新《行政处罚法》第12条第3款创制了“补充设定行政处罚权”,在已经制定上位法的行政管理领域扩大了地方性法规补充设定行政处罚的权限,这一权限扩张到何种程度,关键在于如何界定第12条第3款中的“对违法行为未作出行政处罚规定”。为提升地方治理的有效性,对补充设定行政处罚权条款的解释可采取宽松立场,将违法行为的范围扩大至有碍于实现上位法立法宗旨的行为,而不局限于上位法已经具体规定的违法行为,既符合上位法的精神,又给地方留下广阔的立法空间。为防止这一权力被滥用而不当减损行政相对人的权益,地方仍须注意补充设定行政处罚的限度,现实中可以从合目的性、必要性、均衡性三个维度对拟补充设定的行政处罚进行适当性衡量。

Article 12(3)of the new Administrative Punishment Law creates the"supplementary power to set administrative punishment",and expands the power of local regulations to set administrative punishment in the administrative field where the superior law has been formulated.The key to the extent of this authority is how to define"no provisions on administrative punishment for illegal acts"in Article 12(3).In order to improve the effectiveness of local governance,we can take a loose position on the interpretation of the provisions on the supplementary establishment of the power of administrative punishment,and expand the scope of illegal acts to acts that hinder the realization of the legislative purpose of the superior law,rather than limited to the illegal acts specified in the superior law,which not only conforms to the spirit of the superior law,but also leaves a broad legislative space for the local government.In order to prevent the abuse of power,local governments still need to pay attention to the supplementary setting of the limit of administrative punishment.In reality,the substantive legitimacy of the supplementary administrative punishment can be measured from the three dimensions of purpose,necessity,and balance.