| Suzhou Branch of Luwei (Fujian) Salt Import and Export Co., Ltd. v. Salt Administration of Suzhou City, Jiangsu Province (salt industry administrative penalty case) | | 鲁潍（福建）盐业进出口有限公司苏州分公司诉江苏省苏州市盐务管理局盐业行政处罚案 |
(Issued upon deliberation and adoption by the Judicial Committee of the Supreme People's Court on April 9, 2012) | |
（最高人民法院审判委员会讨论通过 2012年4月9日发布） |
Guiding Case No. 5 | |
指导案例5号 |
Keywords: | |
关键词 |
administration; administrative licenses; administrative penalties; reference to rules; salt industry administration | |
行政 行政许可 行政处罚 规章参照 盐业管理 |
Judgment's Key Holdings | |
裁判要点 |
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| 1. Where an administrative license regarding permits for transportation of industrial salt is not provided for in laws and administrative regulations on the administration of the salt industry, new administrative licenses regarding permits for transportation of industrial salt may not be provided for in local regulations or local government rules. | | 1.盐业管理的法律、行政法规没有设定工业盐准运证的行政许可，地方性法规或者地方政府规章不能设定工业盐准运证这一新的行政许可。 |
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| 2. Where an administrative penalty is not provided for in laws and administrative regulations on the administration of the salt industry with respect to the salt wholesale business of other enterprises that are not salt industry companies, an administrative penalty may not be provided for in local government rules for such business. | | 2.盐业管理的法律、行政法规对盐业公司之外的其他企业经营盐的批发业务没有设定行政处罚，地方政府规章不能对该行为设定行政处罚。 |
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| 3. Where a local government rule provides for an administrative license or administrative penalty in violation of laws and regulations, such local government rule shall not be applied in an administrative trial by the people's court. | | 3.地方政府规章违反法律规定设定许可、处罚的，人民法院在行政审判中不予适用。 |
Relevant Legal Provisions | |
相关法条 |
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| 1. Paragraph 1 of Article 15 and paragraphs 2 and 3 of Article 16 of the Administrative License Law of the People's Republic of China; | | 1.《中华人民共和国行政许可法》第十五条第一款、第十六条第二款、第三款 |
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| 2. Article 13 of the Law of the People's Republic of China on Administrative Penalty; | | 2.《中华人民共和国行政处罚法》第十三条 |
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| 3. Paragraph 1 of Article 53 of the Administrative Procedure Law of the People's Republic of China; and | | 3.《中华人民共和国行政诉讼法》第五十三条第一款 |
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| 4. Article 79 of the Law on Legislation of the People's Republic of China. | | 4. 《中华人民共和国立法法》第七十九条 |
Basic Facts | |
基本案情 |
Plaintiff, Suzhou Branch of Luwei (Fujian) Salt Import and Export Co., Ltd. (hereinafter referred to as “Luwei Company”) alleged that: the specific administrative acts of the defendant, the Salt Administration of Suzhou City, Jiangsu Province (hereinafter referred to as the “Suzhou Salt Administration”) on determining that Luwei Company's purchase and transportation of industrial salt without approval is illegal by following the Measures of Jiangsu Province for Implementation of the Regulation on Salt Industry Administration (hereinafter referred to as the “Jiangsu Salt Industry Implementation Measures”) and on making a decision on an administrative penalty against Luwei Company were in error in respect of the administrative law enforcement organ and the application of law. The Suzhou Salt Administration had neither the function of administering industrial salt nor the corresponding power to enforce the law. In accordance with the Notice of the former State Planning Commission and the former State Economic and Trade Commission on Improving the Measures for the Supply, Marketing and Price Management of Industrial Salt, the system of permits and seals for the transportation of industrial salt was abolished by the state and, furthermore, industrial salt is no longer considered a commodity restricted from trading by the state. Being inconsistent with the spirit of the preceding provisions, the relevant provisions in the Jiangsu Salt Industry Implementation Measures violated not only the Provisions of the State Council on Prohibiting Regional Blockades in Market Economic Activities, but also the Administrative License Law of the People's Republic of China (hereinafter referred to as the “Administrative License Law”) and the Law of the People's Republic of China on Administrative Penalty (hereinafter referred to as the “Law on Administrative Penalty”). The acts of the Suzhou Salt Administration on determining the administrative license and administrative penalty violated the superordinate laws. Hence, Luwei Company requested that the court overrule the Administrative Penalty Decision (No. 001-B [2009] of Salt Administration, Suzhou) made by the Suzhou Salt Administration. | |
原告鲁潍（福建）盐业进出口有限公司苏州分公司（简称鲁潍公司）诉称：被告江苏省苏州市盐务管理局（简称苏州盐务局）根据《江苏省〈盐业管理条例〉实施办法》（简称《江苏盐业实施办法》）的规定，认定鲁潍公司未经批准购买、运输工业盐违法，并对鲁潍公司作出行政处罚，其具体行政行为执法主体错误、适用法律错误。苏州盐务局无权管理工业盐，也无相应执法权。根据原国家计委、原国家经贸委《关于改进工业盐供销和价格管理办法的通知》等规定，国家取消了工业盐准运证和准运章制度，工业盐也不属于国家限制买卖的物品。《江苏盐业实施办法》的相关规定与上述规定精神不符，不仅违反了国务院《关于禁止在市场经济活动中实行地区封锁的规定》，而且违反了《中华人民共和国行政许可法》（简称《行政许可法》）和《中华人民共和国行政处罚法》（简称《行政处罚法》）的规定，属于违反上位法设定行政许可和处罚，故请求法院判决撤销苏州盐务局作出的（苏）盐政一般[2009]第001-B号处罚决定。 |
Defendant, the Suzhou Salt Administration, contended that: In accordance with Article 4 of the Regulation of the State Council on Salt Industry Administration and Article 4 of the Jiangsu Salt Industry Implementation Measures, the Suzhou Salt Administration had the corresponding function of making decisions on administrative penalties regarding salt affairs. The Jiangsu Salt Industry Implementation Measures were formulated under the authorization of the Regulation on Salt Industry Administration, were formulated under the authority of this Regulation, and therefore, are legitimate and valid as a whole. Hence, it was not improper for the Suzhou Salt Administration to make a decision on administrative penalty according to the provisions of the Jiangsu Salt Industry Implementation Measures on establishing a system of transportation permits. Both the Administrative License Law and the Law on Administrative Penalty took effect after the Jiangsu Salt Industry Implementation Measures entered into force. Under the principle of the non-retroactivity of law as provided for in the Law on Legislation of the People's Republic of China (hereinafter referred to as the “Legislation Law”), the Jiangsu Salt Industry Implementation Measures should still apply. Luwei Company's act of purchasing industrial salt without the approval of Jiangsu Salt Industry Group or the approval of the administrative authority for the salt industry violated the relevant provisions of the Regulation on Salt Industry Administration. In the penalty decision made by the Suzhou Salt Administration, the findings of fact were clear, the evidence was conclusive, the application of regulations and regulatory documents was accurate, and the procedure was lawful. Hence, the Suzhou Salt Administration requested that the court reject the claim of Luwei Company.
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被告苏州盐务局辩称：根据国务院《盐业管理条例》第四条和《江苏盐业实施办法》第四条的规定，苏州盐务局有作出盐务行政处罚的相应职权。《江苏盐业实施办法》是根据《盐业管理条例》的授权制定的，属于法规授权制定，整体合法有效。苏州盐务局根据《江苏盐业实施办法》设立准运证制度的规定作出行政处罚并无不当。《行政许可法》、《行政处罚法》均在《江苏盐业实施办法》之后实施，根据《中华人民共和国立法法》（简称《立法法》）法不溯及既往的规定，《江苏盐业实施办法》仍然应当适用。鲁潍公司未经省盐业公司或盐业行政主管部门批准而购买工业盐的行为，违反了《盐业管理条例》的相关规定，苏州盐务局作出的处罚决定，认定事实清楚，证据确凿，适用法规、规范性文件正确，程序合法，请求法院驳回鲁潍公司的诉讼请求。
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