补充设定行政处罚的范围扩张及其限制  

Expansion and Limitations of the Scope of Supplementary Administrative Penalties

作　　者：门中敬 陈方政 MEN Zhongjing;CHEN Fangzheng(School of Law,Shandong University,Weihai 264200,China)

机构地区：[1]山东大学法学院(威海),山东威海264200

出　　处：《齐鲁学刊》2023年第3期75-87,共13页Qilu Journal

基　　金：教育部哲学社会科学研究重大攻关项目“中国共产党领导法治工作历程与经验研究”(21JZD009)。

摘　　要：目前关于补充设定权条款的解释,主要存在限缩解释和扩张解释两种解释路径。限缩解释者认为补充设定行政处罚仅限于“上位法对已规定的违法行为没有规定具体处罚措施”;扩张解释者认为补充设定行政处罚并不限于上述类型,还包括“下位法认定违法行为”及“设定行政处罚”。围绕这两种不同的解释路径,理论和实务界进行了长时间的讨论,但至今仍未达成共识。通过解析补充设定权条款的含义,可以发现补充设定权条款的限缩解释虽然有助于行政执法和司法实践,但并不符合该条款的规范意旨,亦不符合该条款“合理配置立法权、调动地方立法积极性和规范失信联合惩戒”的功能预期。不过,为避免重演《行政处罚法》颁行之前各地乱设处罚的历史,在承认下位法补充设定行政处罚的范围扩张的同时,还应对下位法补充设定行政处罚进行事项限制和比例原则限制。At present,there are mainly two interpretation paths:restrictive interpretation and expansive interpretation in the interpretation of the provisions on supplementary setting power.The limited interpretation considers that the supplementary setting of administrative penalties is limited to"the superior law does not provide for specific penalties for the stipulated violations",while the expanded interpretation considers that the supplementary setting of administrative penalties is not limited to the above-mentioned types,but also includes"the lower law determines the violations and sets administrative penalties".Around these two different interpretation paths,theory and practice have been discussed for a long time,but still have not reached a more consistent opinion.This paper clarifies the six types of administrative penalties set by the lower law through the analysis of the meaning of the supplementary setting right clause,and believes that the limited interpretation of the supplementary setting right clause,though helpful to administrative law enforcement and judicial practice,is not in line with the normative intent of the clause,nor is it in line with the functional expectation of the clause of"reasonable allocation of legislative power,mobilization of local legislative enthusiasm and regulation of joint punishment for breach of trust",In order to avoid repeating the history of setting penalties in various places before the promulgation of the Administrative Penalty Law,the scope of the supplementary setting of administrative penalties under the lower law should be interpreted in an expansive manner,while the supplementary setting of administrative penalties under the lower law should be restricted in terms of matters and the principle of proportionality.

关 键 词：补充设定权 行政处罚 违法行为 范围扩张 比例原则 

分 类 号：D912.1[政治法律—宪法学与行政法学]