城管执法困境及其对策研究——以上海市浦东城管为例

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摘要

改革开放以来我国城市化步伐加快，大量农村赋闲劳动力涌入城市、加之城

市失业人群不断庞大、社会保障体系还不完善，使得城市中大量流动摊贩、占道

经营、乱搭乱建等现象越来越严重，对市容环境和城市秩序造成了很大影响，对

城市管理提出了更高的要求。最初的城市管理多部门联合执法模式，已经越来越

不适应城市管理的需要。于是，城管执法部门应运而生。

相对集中行政处罚权的规定确定了城管执法部门的成立，对改善城市环境，

维护老百姓的合法权益，维护政府形象起到了积极的作用。但是随着社会的发展，

城管执法过程中暴露出许多矛盾和问题，而且城管执法的法律地位不高，城管执

法陷入了进退两难的困境。

本文在总结城管执法困境的基础上，理性分析了使其陷入困境的多方位原因。

同时以上海浦东城管执法为例，结合国内外城管执法的经验做法，最后对破解城

管执法困境提出了几点对策建议，希望能对我国城管执法工作的发展尽绵薄之力。

论文第一部分是绪论，介绍了本文的研究背景、研究意义、国内外研究现状、

研究目标和研究方法。论文第二部分界定了城管执法的概念、城管执法的范围和

依法行政理论。同时介绍了我国城管执法部门的组建及相对集中的行政处罚权。

论文第三部分先简要介绍了上海浦东城管的基本情况，列举了浦东城管执法体制、

效力、保障、环境的困境表现，从法律、制度、经济、观念四方面理性分析和探

究了其困境的原因，为破解城管执法的困境提供了依据。论文第四部分介绍了国

内外城市管理的先进经验。论文第五部分是在前几章的基础之上，从立法、执法、

司法、守法四方面提出的破解城管执法困境的对策建议。

关键词：城管执法相对集中行政处罚权困境对策分析

Abstract

With the acceleration of urbanization since the reform and opening up of China, a

large number of unemployed rural labor force swarming into the city, combined with the

growing of urban unemployed population and the incomplete social security system,

have led to the more serious phenomenon of roadside stall business and illegal

structures, which has a great influence on the city environment and city order, and also

puts forward higher request to the city management. The initial multi-sectoral joint law

enforcement mode of urban management has become increasingly unsuited. Thus, the

urban management and law enforcement department came into being.

The provision of "power of relatively concentrated administrative punishment" has

solved many long standing problems in city management such as duplicate and repeated

law enforcement, disturbing enforcement and low efficiency. The establishment of the

urban management and law enforcement department has played a positive role in

improving the urban environment, safeguarding the legitimate rights and interests of the

people and maintaining the image of the government. However, with the development

of society, many contradictions and problems being exposed in the process of law

enforcement in urban management coupled with its inherent weaknesses, the urban

management and law enforcement has been caught up into all sorts of trouble.

This paper rationally analyzes the multi-faceted reasons which made the urban

management and law enforcement into trouble based on summarizing the plight of it.

While this paper also takes Shanghai Pudong urban management and law enforcement

department for example, combined with domestic and international experience and

practice of city management, finally puts forward some countermeasures and

suggestions to solve the dilemma, in order to make some contributions to the better

progress of China's urban management and law enforcement.

The first part of this paper describes the research background, significance,

research status both at home and abroad, as well as research objectives and methods.

The second part defines the concept of urban management and law enforcement, also

the scope and theoretical basis of it. This part also introduces the forming of urban

management and law enforcement department in China and the power of relatively

concentrated administrative punishment. While the third part briefly introduces the

basic situation of Shanghai Pudong urban management department, enumerates its

plight of law enforcement mechanisms, security and environment, and rationally

analyzes and explores the causes of its plight from the four perspectives as law, system,

economy and concept , so as to provide the basis for solving the plight of the urban

management enforcement. The fourth part introduces the advanced experience of urban

management both at home and abroad. On the basis of former chapters, the last part puts

forward countermeasures and suggestions to solve the law enforcement dilemma from

the four aspects of legislation, law enforcement, judicature and observance of the law.

Key words: The urban management and law enforcement, the power of relatively

concentrated administrative punishment, Dilemma, Analysis and solutions

摘要

Abstract

第一章绪论.................................................................................................................1

1.1 选题背景与意义 ..................................................................................................1

1.1.1 选题背景..........................................................................................................1

1.1.2 选题意义..........................................................................................................2

1.2 国内外研究动态 ..................................................................................................3

1.2.1 国内研究动态 ................................................................................................3

1.2.2 国外研究动态 ................................................................................................4

1.3 研究思路与方法 ..................................................................................................5

1.3.1 研究思路..........................................................................................................5

1.3.2 研究方法..........................................................................................................6

第二章城管执法工作相关概念及理论.........................................................................8

2.1 依法行政理论概述................................................................................................8

2.1.1 依法行政的涵义..............................................................................................8

2.1.2 依法行政的基本要求......................................................................................8

2.2 城管执法的涵义....................................................................................................9

2.2.1 城管的概念......................................................................................................9

2.2.2 城管执法的概念 ...........................................................................................10

2.3 城管执法的特征及职能......................................................................................10

2.3.1 城管执法的特征.............................................................................................10

2.3.2 城管执法的职能............................................................................................11

2.4 城管执法的原则..................................................................................................11

2.4.1 城管法治与服务为民....................................................................................11

2.4.2 高效科学与公众参与....................................................................................12

2.4.3 保障民生与公正执法....................................................................................12

第三章上海浦东城管执法的困境及成因分析...........................................................14

3.1 浦东城管的基本情况介绍..................................................................................14

3.1.1 浦东城管目前的机构设置和人员情况........................................................14

3.1.2 浦东城管的职能范围....................................................................................16

3.2 浦东城管执法的困境..........................................................................................18

3.2.1 浦东城管执法体制之困境 ..........................................................................18

3.2.2 浦东城管执法效力之困境 ..........................................................................19

3.2.3 浦东城管执法保障之困境............................................................................21

3.2.4 浦东城管执法环境之困境............................................................................21

3.3 浦东城管执法困境的成因分析 ........................................................................22

3.3.1 法律法规不够完善........................................................................................22

3.3.2 执法观念亟待更新........................................................................................23

3.3.3 体制机制有待健全........................................................................................24

3.3.4 经济发展尚未同步........................................................................................25

第四章国内外城管执法先进经验 .............................................................................27

4.1 国内城管执法的先进经验..................................................................................27

4.1.1 香港模式........................................................................................................27

4.1.2 台湾模式........................................................................................................27

4.1.3 济南模式........................................................................................................28

4.2 国外城管执法的先进经验..................................................................................29

4.2.1 新加坡模式....................................................................................................29

4.2.2 德国模式........................................................................................................29

4.2.3 法国模式........................................................................................................30

4.3 国内外先进经验的启示......................................................................................30

4.3.1 树立以人为本的执法理念............................................................................32

4.3.2 完善城管执法的法律法规............................................................................33

第五章走出我国城管执法困境的途径 .....................................................................34

5.1 加强立法完善城管执法机制............................................................................34

5.1.1 树立正确的立法理念....................................................................................34

5.1.2 构建规范、统一的城管执法法律体系........................................................34

5.1.3 理顺城管部门体制........................................................................................35

5.1.4 建立行政配合联动机制.................................................................................36

5.1.5 完善城管执法内部监督和社会监督机制....................................................37

5.2 规范执法提高城管执法水平............................................................................38

5.2.1 依法行政规范执法程序................................................................................38

5.2.2 转变执法方式................................................................................................39

5.3 公正司法保障城管执法执行............................................................................39

5.3.1 城管行政执法的人身保障............................................................................39

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摘要：

摘要改革开放以来我国城市化步伐加快，大量农村赋闲劳动力涌入城市、加之城市失业人群不断庞大、社会保障体系还不完善，使得城市中大量流动摊贩、占道经营、乱搭乱建等现象越来越严重，对市容环境和城市秩序造成了很大影响，对城市管理提出了更高的要求。最初的城市管理多部门联合执法模式，已经越来越不适应城市管理的需要。于是，城管执法部门应运而生。相对集中行政处罚权的规定确定了城管执法部门的成立，对改善城市环境，维护老百姓的合法权益，维护政府形象起到了积极的作用。但是随着社会的发展，城管执法过程中暴露出许多矛盾和问题，而且城管执法的法律地位不高，城管执法陷入了进退两难的困境。本文在总结城管执法困境的基础上，理性分...

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