不予行政处罚制度的实践检视与优化路径

The Practice Review and the Optimization Path of Exemption fromAdministrative Penalty System

将“不予行政处罚”制度置于执法实践中予以考察,可以发现这一制度目前存在认定标准混乱和执法程序缺失的实践隐忧。或是因《行政处罚法》第三十三条第一款将“应当”不予行政处罚与“可以不予行政处罚”规定在同一条款中,导致实务中未对只涉及不确定法律概念解释的“应当”不予行政处罚与具有裁量空间的“可以不予行政处罚”加以明确区分,而是将二者均纳入行政机关的裁量空间。我国实定法中对“应当”不予行政处罚条款采用散落式规定方式,学界对构成要件的设定也未达成一致,因此无法形成为行政执法适用所正确采纳的统一认识,也尚未构建起规范适用的环境。为有效指导行政执法的具体适用,应明确“应当”不予行政处罚行为的双重逻辑内涵:在形式层面,行政违法行为不成立;在实质层面,若存在不予处罚事由,可排除行为违法性。对此,有必要厘清“应当”不予行政处罚制度的规范群,据此提出我国不予行政处罚制度体系的优化路径。

When the system of"not imposing administrative penalties"is examined in the context of law enforcement practice,it can be found that the system is currently beset with the practical problems of confusing identification criteria and lack of law enforcement procedures,which further aggravate the difficulties of practical application.It is also the case that article 33,paragraph 1,of the Administrative Penalties Law provides in the same paragraph that administrative penalties"shall"be withheld and"may"be withheld,resulting in a failure in practice to make a clear distinction between"shall"be withheld and"may"be withheld,which involves the interpretation of uncertain legal concepts,and the inclusion of both in the discretionary space of the administrative organ.should"and"may not impose administrative penalties",which are discretionary in nature,are not clearly differentiated in practice,and both are included in the administrative organ's discretionary space.China's substantive law on"should"not administrative penalty provisions in a scattered manner,and in the establishment of the constituent elements of the academic community has not yet reached agreement,so it is not possible to form a unified understanding of the administrative law enforcement application of the correct to adopt,and has not yet built up the normative application of the environment.In order to effectively guide the specific application of administrative law enforcement,the construction of the"should"not be administrative penalty behaviour of the double logic connotation:in the formal level,the administrative offence is not established;in the substantive level,if there is not punishable reasons to exclude the illegality of the behaviour.In this regard,it is necessary to clarify the normative group of the system of"should"not be administrative penalty,and accordingly put forward the optimisation path of the system of not administrative penalty in China.