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1、OpinionsoftheGeneralOfficeoftheStateCouncilforFurtherRegulatingtheDevelopmentand/AdministrationofAdministrativeDiscretionBenchmarksDocumentNumber：No.272022of(heGeneralOfficeoftheSlateCouncilAreaofLaw:AdministrativePenaltyandAdministrativeReconsiderationLevelofAuthority：RegulatoryDocumentsoftheStateC
2、ouncilIssuingAuthority：GeneralOfficeoftheStateCouncilDateIssued：07-29-2022EffectiveDate:07-29-2022Status：EffectiveOpinionsoftheGeneralOfficeoftheStateCouncilforFurtherRegulatingtheDevelopmentandAdministrationofAdministrativeDiscretionBenchmarks(No.272022oftheGeneralOfficeoftheStateCouncil)Thepeoples
3、governmentsofallprovinces,autonomousregions,andmunicipalitiesdirectlyundertheCentralGovernment;andallministriesandcommissionsoftheStaleCouncilandallinstitutionsdirectlyundertheStateCouncil:Administrativediscretionbenchmarksrefertothespecificlawenforcementcriteriaandstandardsthatareannouncedtothepubl
4、icinaspecificformandputintoimplementationbyadministrativeorgansupondetailedquantificationoffundamentalprovisionsinlaws,regulationsandrulesorlawenforcementauthorityandrangeofdiscretion,andothermatterswithacertaindegreeofflexibility,subjecttothedifferentfactsandcircumstancesinvolvedinthediscretion,inl
5、ightoftherealityofadministrationoftheirrespective国务院办公厅关于进一步规范行政裁量权基准制定和管理工作的意见(国办发(2022)27号)各省、自治区、直辖市人民政府，国务院各部委、各直属机构：行政裁量权基准是行政机关结合本地区本部门行政管理实际，按照裁量涉及的不同事实和情节，对法律、法规、规章中的原则性规定或者具有一定弹性的执法权限、裁量幅度等内容进行细化量化，以特定形式向社会公布并施行的具体执法尺度和标准。规范行政裁量权基准制定和管理，对保障法律、法规、规章有效实施，规范行政执法行为，维护社会公平正义具有重要意义。近年来，各地区各部门不断加强
6、制度建设，细化量化行政裁量权基准，执法能力和水平有了较大提高，但仍存在行政裁量权基准制定主体 不明确、制定程序不规范、裁量幅度不合理等问题，导致 行政执法该严不严、该宽不宽、畸轻畸重、类案不同罚等 现象时有发生。为建立健全行政裁量权基准制度，规范行 使行政裁量权，更好保护市场主体和人民群众合法权益， 切实维护公平竞争市场秩序，稳定市场预期，经国务院同 意，现提出以下意见。一、总体要求（-）指导思想。坚持以习近平新时代中国特色社会主义思想为指导，全面贯彻党的十九大和十九届历次全会jurisdictionsandsaidadministrativeorgans.Regulatingthedevel
7、opmentandadministrationofadministrativediscretionbenchmarksisofgreatsignificanceforensuringtheeffectiveimplemenlaiionoflaws,regulationsandrules,regulatingadministrativelawenforcement,andmaintainingsocialfairnessandjustice.Inrecentyears,allregionsandallgovernmentdepartmentshavecontinuouslystrengthene
8、dinstitutionalimprovement,refinedandquantifiedtheadministrativediscretionbenchmarks,andgreatlyimprovedthelawenforcementcapacityandlevel.However,therearestillsomeproblems,suchasuncertaintyastowhoshoulddeveloptheadministrativediscretionbenchmarks,nostandardizeddevelopmentprocedures,andunreasonablerang
9、eofdiscretion,whichhavefrequentlyledtophenomenainwhich,amongother,administrativelawenforcementisnotperformedinastrictwaywhenitshouldbe,oradministrativelawenforcementisperformednotinalenientwaywhenitshouldbe,orexcessivelylightorseverepenaltiesaregiven,ordifferentpenaltiesaregiveninsimilarcases.Forthe
10、purposesofestablishingandimprovingthebenchmarksystemofadministrativediscretion,regulatingtheexerciseofadministrativediscretion,moreeffectivelyprotectingthelegitimaterightsandinterestsofmarketentitiesandthepublic,effectivelymaintainingthemarketorderoffaircompetition,andstabilizingthemarketexpectation
11、s,thefollowingopinionsareherebyputforwarduponapprovaloftheStateCouncil.I.Generalrequirements1. Guidingthought.TheguidanceofXiJinpingThoughtonSocialismwithChineseCharacteristicsforaNewErashallbeinsistedon,andthespiritofthe19thCPCNationalCongressandalltheplenarysessionsofthe19thCPCCentralCommitteeshal
12、lbecomprehensivelyimplemented.XiJinpingThoughtontheRuleofLawshallbeimplementedinanindepthmanner,andthedecisionsanddeploymentsoftheCPCCentralCommitteeandtheStateCouncilshallbeimplementeddiligently.Onthebasisofthenewstageofdevelopment,thenewdevelopmentconceptshallbeimplementedinacomplete,accurateandco
13、mprehensivemanner,anewdevelopmentpatternshallbebuilt,andgovernmentfunctionsshallbeeffectivelytransformed.Thebenchmarksystemofadministrativediscretionshallbeestablishedandimprovedtoensuretheexerciseofadministrativediscretioninastandardizedway.Thelawenforcementproceduresshallbeimproved,supervisionover
14、lawenforcementshallbestrengthened,strict,standardized,impartialandcivilizedlawenforcementshallbepromoted,andtheleveloflaw-basedadministrationshallbeimproved,toprovidestronglegalguaranteeforpromotingthemodernizationofthegovernmentgovernancesystemandgovernancecapacity.2. Basicprinciples.Insistingonuni
15、ficationoflegalsystem.Administrativediscretionbenchmarksshallbeformulated,basedonlawsandregulations,incompliancewiththeprovisionsoflaws,regulations,andrulesonadministrativelawenforcementmatters,conditions,procedures,types,andextents,bytakingintofullconsiderationtherelationshipbetweenthegenerallawreg
16、ulatingjointadministrativeactsandtheseparatelawregulatingaspecificsocialrelationshiporcontenttorealize精神，深入贯彻习近平法治思想，认真落实党中央、国务院决策部署，立足新发展阶段，完整、准确、全面贯彻新发展理念，构建新发展格局，切实转变政府职能，建立健全行政裁量权基准制度，规范行使行政裁量权，完善执法程序，强化执法监督，推动严格规范公正文明执法，提高依法行政水平，为推进政府治理体系和治理能力现代化提供有力法治保障。（二）基本原则。坚持法制统一。行政裁量权基准的设定要于法于规有据，符合法律、法规
17、、规章有关行政执法事项、条件、程序、种类、幅度的规定，充分考虑调整共同行政行为的一般法与调整某种具体社会关系或者某一方面内容的单行法之间的关系，做到相互衔接，确保法制的统一性、系统性和完整性。betteralignmentbetweenthem,soastoensuretheunity,Systematicnessandintegrityofthelegalsystem.坚持程序公正。严格依照法定程序科学合理制定行政裁量 权基准，广泛听取公民、法人和其他组织的意见，依法保 障行政相对人、利害关系人的知情权和参与权。行政裁量 权基准一律向社会公开，接受市场主体和人民群众监督。Insistingo
18、nproceduralfairness.Administrativediscretionbenchmarksshallbescientificallyandrationallydevelopedstrictlyunderthelegalproceduresafterwidelysolicitingopinionsfromcitizens,legalpersonsandotherorganizations,withtherightsofadministrativecounterpartsandinterestedpartiestoknowandparticipateguaranteedinacc
19、ordancewiththelaw.Theadministrativediscretionbenchmarksshallbeannouncedtothepublicandbesubjecttooversightbymarketparticipantsandthepublic.坚持公平合理。制定行政裁量权基准要综合考虑行政职权 的种类，以及行政执法行为的事实、性质、情节、法律要 求和本地区经济社会发展状况等因素，应确属必要、适 当，并符合社会公序良俗和公众合理期待。要平等对待公 民、法人和其他组织，对类别、性质、情节相同或者相近 事项处理结果要基本一致。Insistingonfairnessan
20、dreasonableness.Todevelopadministrativediscretionbenchmarks,comprehensiveconsiderationshallbegiventothetypesofadministrativefunctionsandpowers,aswellasthefacts,nature,andcircumstancesofadministrativelawenforcementacts,legalrequirements,economicandsocialdevelopmentconditionsofthelocalregion,andotherf
21、actors,andtheyshallbetrulynecessaryandappropriate,andbeinlinewithsocialorder,goodcustomsandreasonableexpectationsofthepublic.Citizens,legalpersonsandotherorganizationsshallbetreatedequally,andthehandlingresultsofmatterswiththesameorsimilarcategories,natureandcircumstancesshallbebasicallythesame.坚持高效
22、便民。牢固树立执法为民理念，积极履行法定职贵，简化流程、明确条件、优化服务，切实提高行政效能，避免滥用行政裁量权，防止执法扰民和执法简单粗暴Insistingonefficiencyandconvenienceforthepeople.Withtheconceptofpeople-orientedlawenforcementinmind,effortsshallbemadetoactivelyperformstatutoryduties,simplifyprocedures,clarifyconditions,optimizeservices,“一刀切”，最大程度为市场主体和人民群众提供便利。
23、effectivelyimproveadministrativeefficiency,avoidabuseofadministrativediscretion,preventlawenforcementfromdisturbingthepeople,avoid44one-size-fits-al,lawenforcementapproachesthataresimpleandrude,andfacilitatemarketentitiesandthepublictothegreatestextent.()工作目标。到2023年底前，行政裁量权基准制 度普遍建立，基本实现行政裁量标准制度化、行为
24、规范 化、管理科学化，确保行政机关在具体行政执法过程中有 细化量化的执法尺度，行政裁量权边界明晰，行政处罚、 行政许可、行政征收征用、行政确认、行政给付、行政强 制、行政检查等行为得到有效规范，行政执法质量和效能 大幅提升，社会满意度显著提高。3. Workgoals.Bytheendof2023,thebenchmarksystemforadministrativediscretionwillbegenerallyestablished,andtheinstitutionalizationofadministrativediscretionbenchmarks,standardization
25、ofadministrativeacts,andscientificmanagementwillbebasicallyrealized,toensurethatadministrativeorganshavedetailedandquantifiedlawenforcementbenchmarksintheprocessofspecificadministrativelawenforcement;theboundariesofadministrativediscretionwillbeclear;administrativepunishment,administrativelicensing,
26、administrativeexpropriationandrequisition,administrativeconfirmation,administrativepayment,administrativecoercion,administrativeinspectionandotheractswillbeeffectivelyregulated;thequalityandefficiencyofadministrativelawenforcementwillbegreatlyimproved;andsocialsatisfactionwillbesignificantlyimproved
27、.二、明确行政裁量权基准制定职责权限(四)严格履行行政裁量权基准制定职责。国务院有 关部门可以依照法律、行政法规等制定本部门本系统的行 政裁量权基准。制定过程中，要统筹考虑其他部门已制定 的有关规定，确保衔接协调。省、自治区、直辖市和设区II.Specifyingthedutiesandauthoritiesfordevelopmentofadministrativediscretionbenchmarks4. Strictlyperformingthedutiesfordevelopingtheadministrativediscretionbenchmarks.Relevantdepart
28、mentsoftheStateCouncilmay,inaccordancewithlaws,administrativeregulations,etc.,developadministrativediscretionbenchmarksfortheirdepartmentsandsystems.Duringthedevelopmentprocess,theyshallgiveoverallconsiderationtotherelevantregulationsthathavebeendevelopedbyotherdepartmentstoensurealignmentandcoordin
29、ationwiththeirs.Thepeoplesgovernmentsofprovinces,autonomousregions,municipalitiesdirectlyundertheCentralGovernment,districtedcities,andautonomousprefecturesandtheirdepartmentsmay,inaccordancewithlaws,regulations,rules,andtheadministrativediscretionbenchmarksdevelopedbyadministrativeorgansathigherlev
30、els,developadministrativediscretionbenchmarksthatapplywithintheirrespectiveadministrativeregions.Thepeoplesgovernmentatthecountylevelanditsdepartmentsmay,withinthestatutoryscope,rationallyrefineandquantifythestandards,conditions,types,extents,methods,andtimelimitsapplicabletotheadministrativediscret
31、ionbenchmarksdevelopedbytheadministrativeorgansathigherlevels.Thelocalpeoplesgovernmentsandtheirdepartmentsmayrefertotherelevantrulesofplaceswithconditionssimilartothelevelofeconomicdevelopmentandpopulationsizeoftheirownregionsintheprocessofdevelopingadministrativediscretionbenchmarks.5. Strictlyreg
32、ulatingtheauthorityfordevelopingadministrativediscretionbenchmarks.Administrativeorgansmay,accordingtotheirworkneeds,developadministrativediscretionbenchmarksinaccordancewiththelaw.Withoutthebasisoflaws,regulationsandrules,theobligationsofadministrativecounterpartsshallnotbeincreasedortherightsandin
33、terestsofadministrativecounterpartsshallnotbeimpaired.Forthesameadministrativelawenforcementmatter,iftheadministrativeorganatahigherlevelhasalreadydevelopedadministrativediscretionbenchmarks,the的市、自治州人民政府及其部门可以依照法律、法规、规章以及上级行政机关制定的行政裁量权基准，制定本行政区域内的行政裁量权基准。县级人民政府及其部门可以在法定范围内，对上级行政机关制定的行政裁量权基准适用的标准、条件
34、、种类、幅度、方式、时限予以合理细化量化。地方人民政府及其部门在制定行政裁量权基准过程中，可以参考与本地区经济发展水平、人口规模等相近地方的有关规定。（五）严格规范行政裁量权基准制定权限。行政机关可以根据工作需要依法制定行政裁量权基准。无法律、法规、规章依据，不得增加行政相对人的义务或者减损行政相对人的权益。对同一行政执法事项，上级行政机关已经制定行政裁量权基准的，下级行政机关原则上应直接适用；如下级行政机关不能直接适用，可以结合本地区经济社会发展状况，在法律、法规、规章规定的行政裁量权范围内进行合理细化量化，但不能超出上级行政机关划定的阶次或者幅度。下级行政机关制定的行政裁量权基准与上adm
35、inistrativeorganatalowerlevelshalldirectlyapplytheminprinciple;andifadministrativediscretionbenchmarkscannotbedirectlyappliedbytheadministrativeorganatalowerlevel,theadministrativediscretionbenchmarksshallbereasonablyrefinedandquantifiedwithinthescopeofadministrativediscretionspecifiedinthelaws,regu
36、lationsandrulesinlightofthelocaleconomicandsocialdevelopmentconditions,withoutbeyondtheorderorrangedefinedbytheadministrativeorganatahigherlevel.Iftheadministrativediscretionbenchmarksdevelopedbyanadministrativeorganatalowerlevelconflictwiththosedevelopedbyanadministrativeorganatahigherlevel,thelatt
37、ershallapply.III.Preciselyspecifyingthecontentsofadministrativediscretionbenchmarks6. Promotingappropriatediscretioninadministrativepenalties.Forthesameillegalact,ifthetypeandrangeofpunishmentmaybeselectedinaccordancewithlaws,regulationsandrules,orthereareonlyfundamentalprovisionsinlaws,regulationsa
38、ndrulesonconditionsfornopunishment,exemptionfrompunishment,lesserpunishment,mitigatedpunishmentandheavierpunishment,thediscretionbenchmarksforadministrativepunishmentsshallberefinedandquantifiedaccordingtothefacts,nature,circumstances,andsocialharmofillegalacts,topreventdisproportionatenessofpunishm
39、enttosuchillegalact,lightpunishmentgivenforheavyliability,andheavypunishmentgivenforlightliability.Thediscretionbenchmarksforadministrativepunishmentsshallincludeillegalacts,statutorybasis,discretionaryorder,applicableconditionsandspecificstandards.Instrictaccordancewiththe级行政机关制定的行政裁量权基准冲突的，应适用上级行政
40、机关制定的行政裁量权基准。三、准确规定行政裁量权基准内容（六）推动行政处罚裁量适当。对同一种违法行为，法律、法规、规章规定可以选择处罚种类、幅度，或者法律、法规、规章对不予处罚、免予处罚、从轻处罚、减轻处罚、从重处罚的条件只有原则性规定的，要根据违法行为的事实、性质、情节以及社会危害程度细化量化行政处罚裁量权基准，防止过罚不相适应、重责轻罚、轻责重罚。行政处罚裁量权基准应当包括违法行为、法定依据、裁量阶次、适用条件和具体标准等内容。要严格依照中华人民共和国行政处罚法有关规定，明确不予处罚、免予处罚、从轻处罚、减轻处罚、从重处罚的裁量阶次，有处罚幅度的要明确情节轻微、情节较轻、情节较重、情节严重
41、的具体情形。relevantprovisionsoftheLawofthePeoplesRepublicofChinaonAdministrativePenalty,thediscretionaryorderofnopunishment,exemptionfrompunishment,lighterpunishment,mitigatedpunishment,andheavierpunishmentshallbespecified.Ifthereisarangeofpunishment,thespecificcircumstancesofminor,relativelyminor,relati
42、velyseriousandseriouscircumstancesshallbespecified.Theprincipleofpenaltiescommensuratewiththegravityofillegalactivitiesandtheprincipleofcombiningpunishmentwithleniencyshallbeinsistedon,topreventexcessivelylightorseverepenaltiesandobviousunfairness.Thecombinationofpunishmentandeducationshallbeinsiste
43、don,andtheroleofadministrativepunishmentinprovidingeducationandguidanceforcitizens,legalpersonsandotherorganizationstomakethemconsciouslyabidebythelawshallbemaximized.Wherenoadministrativepunishmentisimposedinaccordancewiththelawuponthosewhocommitillegalacts,theadministrativeorganshallstrengthencrit
44、icismandeducationofthepartiestopreventrecurrenceofsuchillegalacts.Thespecificcircumstancesshallbespecifiedandtherangeoffinesshallbequantifiedreasonablyinaccordancewiththelaw.Arbitraryfinesshallberesolutelyavoided.Itshallbestrictlyprohibitedtomakefinessourcesofincome,andusefinesasanindicatorforrankin
45、gorperformanceappraisal.Theamountoffinesforcircumstancesformitigated,generalandheavierpunishmentshallbespecified,topreventsimplyhigherorlowerpunishmentunderstrictlimitofthestatutoryrange;iftheamountofthefineisamultipleofacertainamount,thereshallbeamultiplebetweenthemaximummultipleandthe要坚持过罚相当、宽严相济，
46、避免畸轻畸重、显失公平。坚持处罚与教育相结合，发挥行政处罚教育引导公民、法人和其他组织自觉守法的作用。对违法行为依法不予行政处罚的，行政机关要加强对当事人的批评教育，防止违法行为再次发生。要依法合理细化具体情节、量化罚款幅度，坚决避免乱罚款，严格禁止以罚款进行创收，严格禁止以罚款数额进行排名或者作为绩效考核的指标。罚款数额的从轻、一般、从重档次情形要明确具体，严格限定在法定幅度内，防止简单地一律就高或者就低处罚；罚款数额为一定金额的倍数的，要在最高倍数与最低倍数之间划分阶次；罚款数额有一定幅度的，要在最高额与最低额之间划分阶次，尽量压缩裁量空间。需要在法定处罚种类或幅度以下减轻处罚的，要严格进
47、行评估，明确具体情节、适用条件和处罚标minimummultiple;andifthereiscertainrangeintheamountoffines,theamountshallbespecifiedbetweenthehighestamountandthelowestamount,andthediscretionshallbereducedasmuchaspossible.Ifpunishmentneedsiobemitigatedbelowthetypeorrangeofthestatutorypunishment,strictevaluationshallbecarriedout,
48、andspecificcircumstances,applicableconditionsandpunishmentstandardsshallbespecified.7. Promotingtheconvenienceandefficiencyofadministrativelicensing.Ifthereareonlyfundamentalprovisionsinlaws,regulationsandrulesonconditions,procedures,timelimitforhandling,rejection,alteration,withdrawal,revocationand
49、cancellationofadministrativelicenses,ortherearenoclearprovisionsontheapplicationmaterialsforadministrativelicenses,therelevantadministrativeorgansmayspecifyandquantifytherelevantcontent,butmaynotaddlicensingconditionsorlinks,orsupportingmaterials,orimposeanydiscriminatory,geographicalrestrictionsorotherunfairtermsdirectlyorinadisguisedmanner,topreventindustrymonopoly,localprotection,andmarketsegmentation.Ifadministrativelicensingistobesetinlaws,regulationsordeci
