裁量基准中逸脱条款的适用——以水行政处罚为例

Application of escape clause in discretionary basis——Taking water administrative penalty as an example

裁量基准中设立逸脱条款可以弥补规则主义的固有缺陷,为执法人员在基准之外行使行政裁量权保留必要的空间。在水行政领域,无论是水事违法行为,还是水行政处罚都存在一定的特殊性。文章对现行水行政处罚裁量基准文本进行梳理,同时结合法律文书实证分析发现逸脱条款不仅适用程度较低,且易发生法律风险。基于行政处罚裁量基准的适用缺陷和逸脱条款的设立初衷,必要时执法机关应当考虑逸脱裁量基准。适用逸脱条款的条件包括逸脱条款已公布、违法案件存在特殊情况及处罚明显不当。在具体的适用程序上应当经过集体讨论、说明理由和预先审核。为充分发挥逸脱条款的适用效果,树立适用逸脱条款的典型案例,加强司法审查,引导执法人员作出正确合法的行政处罚裁量基准逸脱行为。

The establishment of escape clause in the discretionary benchmark can make up for the inherent defects of the rule doctrine and reserve the necessary space for law enforcement personnel to exercise administrative discretion beyond the benchmark.In the field of water administration,both water violations and water administrative penalties have certain particularity.Combining the current benchmark text of water administrative punishment discretion with the empirical analysis of legal documents,this article points out that escape clauses are not only less applicable,but also prone to legal risks.Based on the application defects of the administrative penalty discretion benchmark and the original intention of the escape clause,the law enforcement agencies should consider the escape discretion benchmark when necessary.The conditions for applying the escape clause include that the escape clause has been announced,there are special circumstances in illegal cases,and the punishment is clearly inappropriate.Specific application procedures shall be subject to collective discussion,explanation and pre-examination.In order to give full play to the application effect of escape clauses,it is necessary to establish typical cases of escape clauses,strengthen judicial review,and guide law enforcement personnel to make correct and legal administrative penalty discretion benchmark escape behavior.