我国城管综合执法主体制度研究

发布时间：2018-07-11 14:22

本文选题：城管综合执法 + 主体资格　；参考：《安徽大学》2014年硕士论文

【摘要】：伴随着中国经济的迅猛发展,城市化进程不断加快,社会问题越来越复杂,为了解决城市化带来的诸多问题,提高城市管理的执法效率和水平,城市管理领域开展了相对集中行政处罚权的制度建设,相对集中行政处罚权一方面缓解了城市管理中“多头执法”“重复执法”等问题；另一方面它承载了城市管理秩序与“弱势群体”生存之间的平衡关系,成为转型期社会矛盾集结点。城管综合执法问题也已经受到了中央的高度重视,十八届三中全会在《中共中央关于全面深化改革若干重大问题的决定》中,单独提到了城管工作：“理顺城管执法体制,提高执法和服务水平。” 从目前情况看,城管综合执法在主体资格和法律地位方面还存在着缺陷,职权范围也不清晰,与一些职能部门在执法期间也会因为权限划分不清产生矛盾,它不仅面临着执法相对人的质疑,而且在与其他部门打交道的过程中也处于“弱势地位”,其执法行为既得不到执法相对人的认同,也得不到其他部门的配合。不仅如此,一些学者甚至认为城管执法主体的设立不符合行政组织法的原则,不是适格的行政机关。因此明确城管综合执法机构行政主体资格,理顺城管执法体制,提高执法和服务水平势在必行。首先,笔者认为城管综合执法机关具有行政主体资格。原因有以下几点：第一,城管综合执法机关具有法定职权。根据《行政处罚法》第16条明确规定将有关机关行政处罚权集中给一个行政机关行使。第二,城管综合执法机关具有独立的法律地位,能够以自己的名义行使职权并承担法律责任。根据国务院文件精神,集中行使行政处罚权的行政机关应当作为本级政府的一个行政机关,不得作为政府一个部门的内设机构或下设机构。第三,城管执法机构是在改革先行的模式下进行的,由于行政本身具有灵活性、实效性的特点,这种模式可以在短期内取得明显效果,也能根据实际情况对改革过程中遇到的问题进行调整。因此,城管综合执法机构设置程序的瑕疵不影响其主体资格的确立。第四,法律有关于行政机构合并、设立等应变性规定,使得行政机关在相对集中行政处罚权中对机构调整有了法律依据,这一依据也是我国城管机构设置的指导原则。其次,理顺城管执法体制,不可避免的要面对现存的一些问题。第一,在领导体制方面,中央和省级没有行业主管部门,无法顺应自上而下的大体制背景,使得基层执法机构诉求难以得到反映；第二,在机构设置方面,机构名称和级别不一且缺乏综合执法主体的设定原则；第三,在人事制度方面,城管部门执法人员构成复杂、来源多元化、编制混乱。笔者在文章的最后从完善城管执法理念、明确城管执法的功能定位及改革机构领导体制探索等几个方面提出了理顺城管执法体制、提高执法和服务水平的建议。
[Abstract]:With the rapid development of Chinese economy, the process of urbanization is speeding up and the social problems are becoming more and more complicated. In order to solve many problems brought by urbanization and improve the efficiency and level of law enforcement in urban management, In the field of urban management, the system construction of relatively centralized administrative punishment power has been carried out. On the one hand, the relatively centralized administrative punishment power has alleviated the problems of "multiple law enforcement" and "repeated law enforcement" in urban management. On the other hand, it bears the balance between the urban management order and the existence of the "vulnerable groups", and becomes the gathering point of social contradictions in the transition period. The issue of comprehensive law enforcement in urban management has also received great attention from the central authorities. In the "decision of the CPC Central Committee on comprehensively deepening the Reform of several important issues", the third Plenary session of the 18th CPC Central Committee separately mentioned the work of urban management: "straighten out the law enforcement system of urban management," To improve the level of law enforcement and service. " Judging from the current situation, the comprehensive law enforcement of urban management still has defects in terms of subject qualification and legal status, and the terms of reference are not clear, and conflicts will also arise with some functional departments during the period of law enforcement because of the unclear division of jurisdiction. It not only faces the challenge of the relative person of law enforcement, but also is in a weak position in the process of dealing with other departments. Its law enforcement behavior is neither recognized by the counterpart of law enforcement, nor can it be cooperated with by other departments. Moreover, some scholars even think that the establishment of urban management law enforcement subject does not accord with the principle of administrative organization law, and is not an appropriate administrative organ. Therefore, it is imperative to clarify the qualifications of the administrative subject of the comprehensive law enforcement agencies of urban management, to rationalize the law enforcement system of urban management, and to improve the law enforcement and service level. First of all, the author thinks that the comprehensive law enforcement organs of urban management have the qualification of administrative subject. The reasons are as follows: first, urban management comprehensive law enforcement agencies have legal powers. According to Article 16 of the Administrative punishment Law, the administrative penalty power of the relevant organs shall be centralized to one administrative organ. Secondly, the comprehensive law enforcement agencies have independent legal status and can exercise their functions and responsibilities in their own name. According to the spirit of the documents of the State Council, the administrative organ that centralizes the exercise of the power of administrative punishment shall be regarded as an administrative organ of the government at the corresponding level, and shall not be regarded as the internal or subordinate organ of a department of the government. Third, the law enforcement agencies of urban management are carried out under the model of leading the reform. Due to the flexibility and effectiveness of the administration itself, this model can achieve obvious results in a short period of time. It is also possible to adjust the problems encountered in the process of reform according to the actual situation. Therefore, the defects in the procedure of setting up a comprehensive law enforcement agency do not affect the establishment of its subject qualification. Fourth, the law has provisions on the merger and establishment of administrative organs, which makes the administrative organs have a legal basis for the adjustment of institutions in the relatively centralized administrative punishment power, which is also the guiding principle of the establishment of urban management institutions in our country. Secondly, straighten out the law enforcement system of urban management, inevitable to face some existing problems. First, in terms of the leadership system, the central and provincial authorities do not have industry departments, so they cannot adapt to the background of a large system from top to bottom, which makes it difficult to reflect the demands of grass-roots law enforcement agencies. Second, in terms of institutional setting up, Third, in the personnel system, the composition of law enforcement personnel in urban management departments is complex, the sources are diversified, and the establishment is chaotic. At the end of the article, the author puts forward some suggestions to improve the law enforcement system and improve the level of law enforcement and service from the aspects of perfecting the concept of urban management law enforcement, clarifying the functional orientation of urban management law enforcement, and exploring the leadership system of reform institutions.
【学位授予单位】：安徽大学
【学位级别】：硕士
【学位授予年份】：2014
【分类号】：D922.1

【参考文献】