作者：张淑芳
作者介绍：上海财经大学法学院教授
出版日期：2022年4月9日
内容提要 免罚清单既是行政法治实践的创新，又与《行政处罚法》密切关联。其在营造宽松营商环境、促进监管领域良性互动、提升执法效能等方面都产生了良好的实际效果和社会影响。然而，从行政法治理论的角度审视，它与现行立法体制、与《行政处罚法》还有某种程度的不契合，潜藏着纵容行政违法、限缩行政处罚自由裁量权等法律风险。为此，必须在行政法体系中合理定位免罚清单，提升其规范层级，使之与《行政处罚法》高度融合，这是免罚清单规范化的必经之路，也是进一步拓展免罚清单适用范围的基础和保障。建议免罚清单在内容设计上采取负面清单文本模式，食品药品等领域事项应附条件免罚，确定免罚的判定标准。
关键词 免罚清单 行政处罚法 法理逻辑 契合路径
Abstract: List of impunity is not only the innovation of administrative rule of law, but also closely related to the Administrative Penalty Law, which has perfect practical effects and social influence on creating a good business environment, promoting benign interaction in the regulatory field, and improving the efficiency of law enforcement. However, judging from the perspective of the theory of administrative rule of law, it is inconsistent with the current legislative system and the Administrative Penalty Law to some extent, and there are hidden legal risks such as conniving administrative violation and limiting administrative penalty discretion. For this reason, it is essential to reasonably locate impunity list in administrative rule of law system, upgrade its normative level, and make it highly integrated with the Administrative Penalty Law, which is the only way to standardize the impunity list, and it is also the basis and guarantee to further expand the scope of application of the list of impunity. It is suggested that impunity list should adopt negative list text mode in content design, include conditional impunity of food and drug and other matters, and determine the judgment standard of impunity.