行政处罚期间制度的规范检视与体系建构

Normative Review and System Construction of Administrative Penalty Period System

完整的行政处罚期间制度包括追究时效、裁决时效和执行时效,这构成规范和限制行政处罚全过程和各阶段的期间制度体系。当前,《行政处罚法》规定的2年处罚时效是追究时效,它仅适用于违法行为的追究阶段;规定的90天办案期限并不发生实际法律效果,并非是规范意义上的裁决时效。同样,《行政强制法》规定的为期3个月申请法院强制执行的期限也缺乏刚性法律后果,不是真正限制处罚决定执行力的执行时效。经由理论检视,规范意义上的追究时效、裁决时效、执行时效在适用对象、起算时点、计算规则和期限经过的法律效果等方面存在显著差异,这三者在制度属性上分别对应权力期间、除斥期间和消灭时效,应当根据其制度属性展开立法建构和解释适用。具体来说,在立法论上,要注意这三者之间的内部衔接以及与刑法上追诉时效的外部衔接制度设计;在解释论上,要注意这三者之间的适用衔接以及执行“双轨制”模式下执行时效制度的内部一致性。完善的行政处罚期间制度经由立法论和解释论的合力体系化,最终方能实现规范和限制行政处罚权行使全流程的“时间法治”

The complete administrative punishment period system includes the statute of limitations,the statute of limitations for adjudication and the statute of limitations for execution,which constitutes the system of the period system that regulates and limits the whole process and each stage of administrative punishment.Currently,the"Administrative Penalty Law"provides for a 2-year statute of limitations on punishment is to pursue the statute of limitations,which is only applicable to the investigation stage of the violation;the 90-day period for handling the case does not occur in the actual legal effect,is not the ruling statute of limitations in the normative sense.Similarly,the three-month period for applying for court enforcement under the Administrative Compulsory Law also lacks rigid legal consequences and is not a statute of limitations that truly limits the enforceability of penalty decisions.Theoretically,there are significant differences between the statute of limitations,the statute of adjudication and the statute of enforcement in terms of the object of application,the starting point,the rules of calculation and the legal effects of the elapsed period,which correspond to the period of power,the period of exclusion and the period of extinction,respectively.Specifically,in the legislative theory,attention should be paid to the internal connection between these three and the external connection with the statute of limitations in criminal law;in the interpretation theory,attention should be paid to the system connection between these three and the internal consistency of the statute of limitations under the implementation of the"dual-track"model.The complete administrative penalty period system is systematized through the combined efforts of legislative and interpretive theories,so as to finally realize the"time rule"that regulates and restricts the whole process of the exercise of administrative penaltypower.