新行政处罚法对补充性立法的创设及其实施

The Creation and Implementation of Supplementary Legislation in Administrative Penalty Law

我国新修订的行政处罚法规定了补充性立法。补充性立法,因其具有半共享性、半代位性、半创制性、半补充性和半试验性,不同于自主性立法和先行性立法,属于新的立法形态。下位法对于上位法的补充性,不是补充性立法独有的,即便是实施性立法,也具有补充性。不同的立法形态具有不同的补充功能和对象,先行性立法是对上位法规制漏洞的补充,实施性立法是对法律规范事实构成要件的补充,而补充性立法是对法律规范之责任要件的补充。补充性立法应主要适用于行政处罚的设定,对于行政许可、行政强制的设定未必适用。在我国现行立法体制下,下位法补充设定行政处罚时,可设定的行政处罚种类应限于其固有的行政处罚设定权,并不能因补充上位法的漏洞而享有上位法独享的行政处罚设定权。补充设定行政处罚时,应以法律责任漏洞的存在为前提,以违法行为的存在为依托,在遵循平等原则和比例原则的基础上贯彻过罚相当原则。

The newly revised Administrative Penalty Law stipulates supplementary legislation,which is different from the independent legislation and the legislation in advance,and belongs to a new legislative form because of its semi-shared,semi-subrogated,semi-creative,semi-supplementary and semi-experimental nature.The supplementary nature of lower-level law to upper-level law is not unique to supplementary legislation.Even executive legislation is complementary,but different legislative forms have different supplementary functions and objects.The legislation in advance plugs the loopholes in the upper-level law,and the executive legislation supplements the factual elements of the legal norms,but the supplementary legislation supplements the liability elements of the legal norms.Supplementary legislation should mainly apply to the establishment of administrative penalties,and may not be applicable to administrative license and administrative compulsion.Under the current legislative system,when the establishment of administrative penalty is supplemented by the lower-level law,the types of penalties should be limited to those designated by its inherent power,excluding the power exclusively possessed by the upper-level law to set administrative penalty due to the loopholes in it.In addition,the supplementary establishment of administrative penalty should be based on the existence of real legal liability loopholes,rely on the existence of illegal acts,and implement the principle of equivalent penalties on the basis of following the principle of equality and proportionality.