地方性法规补充设定行政处罚的规范阐释

The Normative Interpretation about Local Regulations to Supplement the Setting of Administr-ative Punishrnent

新修订的《行政处罚法》第12条第3款创设了“补充设定行政处罚权”,允许地方性法规在上位法已经规定的行政管理领域内补充设定行政处罚,地方行政处罚设定权因此就包括先行设定权、执行规定权和补充设定权三类,地方行政处罚设定权得以扩充和完善。地方立法机关依法合理行使行政处罚补充设定权,是优化地方行政处罚、保障地方治理的一项重要举措,迫切需要对地方性法规的行政处罚补充设定权进行规范阐释。这种规范阐释,主要是通过厘清“补充设定”和“未作出行政处罚规定”来界定补充设定权;同时基于地方惩罚手段泛滥和治理工具不足的现实困境,对补充设定权的解释可以采取宽松立场,允许地方性法规补充设立违法行为及相应行政处罚。为防止“补充设定权”被滥用而不当减损行政相对人的权益,应当从目的正当性、手段必要性、程序法定性三个方面对其作出实质判断并加以限制,以确保拟补充设定行政处罚的合法性。

Paragraph 3 of Article 12 of the Administrative Punishment Law creates the right of supplementary setting of administrative punishment,which allows local laws and regulations to supplement the setting of administrative punishment in the administrative management field already stipulated by the superior law.Therefore,the right of setting local administrative punishment can be divided into three categories:the right of setting in advance,the right of implementing regulations and the right of supplementary setting.It is one of the important means for local legislatures to reasonably exercise the supplementary setting right of administrative punishment to ensure local governance.Therefore,it is necessary to further explain the"supplementary setting right".Specifically,the right of supplementary establishment is defined by defining"supplementary establishment","illegal act"and"no administrative penalty provisions".At the same time,based on the realistic dilemma of the proliferation of local punishment means and the lack of governance tools,we can take a loose stance on the interpretation of supplementary establishment rights and allow local regulations to supplement illegal acts.In order to prevent this power from being abused and improperly impairing the rights and interests of the administrative counterpart,the local supplementary establishment right can make substantive judgments from three aspects:purposiveness,necessity and procedure,so as to ensure the legitimacy of the proposed supplementary administrativepunishment.