行政处罚权下沉乡镇的性质定位——以《行政处罚法》第24条为分析对象  

Nature Orientation of Delegation of Power of Ministrative Penalty to Towns and Villages——By Taking Analysis on Article 24 of the Law on Administrative Penalty

作　　者：杨治坤[1] Yang Zhikun

机构地区：[1]广东外语外贸大学法学院、区域法治研究院

出　　处：《法学》2023年第12期34-50,共17页Law Science

基　　金：国家社科基金重大项目“营造市场化、法治化、国际化一流营商环境研究”(23ZDA056)的阶段性成果。

摘　　要：行政执法权下放是适应基层治理走向善治的重要改革举措。然而,镶嵌于行政执法权链条中的行政处罚权下沉实践隐藏着无序的风险,学界对行政处罚权下沉的性质也存在诸多理论分歧。在现行宪法和组织法框架下,行政执法权下放的性质定位不能直接套用于行政处罚权下沉;宪法和组织法中关于乡镇人民政府职权的规定亦无法推导出乡镇人民政府具有行使行政处罚权的主体资格。行政处罚权下沉乡镇在本质上是一种适应事权改革的行政处罚权合作运行方式变革,其形式应当是行政委托。《行政处罚法》第24条规定不符合授权规范要求,行政处罚权下沉乡镇的方式只能解读为行政委托,需要完善行政委托的相应规则,以保障行政处罚权下沉乡镇人民政府的规范与有序。Decentralization of administrative enforcement power is an important reform measure to adapt to grassroots governance moving towards good governance.The administrative penalty power embedded in the chain of administrative enforcement power sinks into the practice of hidden disorderly risks.There are theoretical divergences in the nature of the sinking of administrative penalty power in academic circles.Under the framework of the current Constitution and Organic Law,the nature of the delegation of administrative penalty power to the township cannot be directly applied to the sinking of administrative penalty power.That the township people's government has the subject qualification to exercise the administrative penalty power cannot be deduced from the provisions of the Constitution and the Organic Law on the functions and powers of the township people's government.The delegation of administrative penalty power to the township is essentially a kind of reform of the cooperative operation mode of administrative penalty power to adapt to the reform of administrative power,and the way of the decentralization of administrative penalty power to the township should be administrative entrustment.Article 24 of the Administrative Penalty Law does not meet the requirements of the authorization standard,the method of delegataing administrative penalty power can only be interpreted as administrative entrustment,and the corresponding rules of administrative entrustment shall be perfected to ensure the standardization and order of the administrative penalty power delegating to the township people's government.

关 键 词：行政处罚权下沉 乡镇人民政府 行政授权 行政委托 

分 类 号：D922.1[政治法律—宪法学与行政法学]