本文選題：城管綜合執(zhí)法 + 主體資格��； 參考：《安徽大學》2014年碩士論文

【摘要】：伴隨著中國經濟的迅猛發(fā)展,城市化進程不斷加快,社會問題越來越復雜,為了解決城市化帶來的諸多問題,提高城市管理的執(zhí)法效率和水平,城市管理領域開展了相對集中行政處罰權的制度建設,相對集中行政處罰權一方面緩解了城市管理中“多頭執(zhí)法”“重復執(zhí)法”等問題；另一方面它承載了城市管理秩序與“弱勢群體”生存之間的平衡關系,成為轉型期社會矛盾集結點。 城管綜合執(zhí)法問題也已經受到了中央的高度重視,十八屆三中全會在《中共中央關于全面深化改革若干重大問題的決定》中,單獨提到了城管工作：“理順城管執(zhí)法體制,提高執(zhí)法和服務水平�！� 從目前情況看,城管綜合執(zhí)法在主體資格和法律地位方面還存在著缺陷,職權范圍也不清晰,與一些職能部門在執(zhí)法期間也會因為權限劃分不清產生矛盾,它不僅面臨著執(zhí)法相對人的質疑,而且在與其他部門打交道的過程中也處于“弱勢地位”,其執(zhí)法行為既得不到執(zhí)法相對人的認同,也得不到其他部門的配合。不僅如此,一些學者甚至認為城管執(zhí)法主體的設立不符合行政組織法的原則,不是適格的行政機關。 因此明確城管綜合執(zhí)法機構行政主體資格,理順城管執(zhí)法體制,提高執(zhí)法和服務水平勢在必行。 首先,筆者認為城管綜合執(zhí)法機關具有行政主體資格。原因有以下幾點：第一,城管綜合執(zhí)法機關具有法定職權。根據(jù)《行政處罰法》第16條明確規(guī)定將有關機關行政處罰權集中給一個行政機關行使。第二,城管綜合執(zhí)法機關具有獨立的法律地位,能夠以自己的名義行使職權并承擔法律責任。根據(jù)國務院文件精神,集中行使行政處罰權的行政機關應當作為本級政府的一個行政機關,不得作為政府一個部門的內設機構或下設機構。第三,城管執(zhí)法機構是在改革先行的模式下進行的,由于行政本身具有靈活性、實效性的特點,這種模式可以在短期內取得明顯效果,也能根據(jù)實際情況對改革過程中遇到的問題進行調整。因此,城管綜合執(zhí)法機構設置程序的瑕疵不影響其主體資格的確立。第四,法律有關于行政機構合并、設立等應變性規(guī)定,使得行政機關在相對集中行政處罰權中對機構調整有了法律依據(jù),這一依據(jù)也是我國城管機構設置的指導原則。 其次,理順城管執(zhí)法體制,不可避免的要面對現(xiàn)存的一些問題。第一,在領導體制方面,中央和省級沒有行業(yè)主管部門,無法順應自上而下的大體制背景,使得基層執(zhí)法機構訴求難以得到反映；第二,在機構設置方面,機構名稱和級別不一且缺乏綜合執(zhí)法主體的設定原則；第三,在人事制度方面,城管部門執(zhí)法人員構成復雜、來源多元化、編制混亂。 筆者在文章的最后從完善城管執(zhí)法理念、明確城管執(zhí)法的功能定位及改革機構領導體制探索等幾個方面提出了理順城管執(zhí)法體制、提高執(zhí)法和服務水平的建議。
[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.
【學位授予單位】：安徽大學
【學位級別】：碩士
【學位授予年份】：2014
【分類號】：D922.1

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