上官博毕业论文初稿

城管暴力执法的危害、成因及对策研 究 摘要：行政执法是行政管理工作的重要组成部分， “有法可依，有法必依， 执法必严，违法必究”指导方针的提出，给我国法制建设指明了方向，加快了 我国法制建设的进程。单当下我国行政执法过程中出现许多矛盾，有的表现相 当激烈，尤其在城管执法领域，执法人员与被执法者之间的冲突平凡发生，暴 力执法频频出现，严重背离了和谐社会构建的目标，危及到社会稳定和干群关 系，进而影响党和政府在人民心目中的形象，破坏改革发展稳定的大局。本次 论文运用行政学、法学等学科的基本理论和方法，对城管中的暴力执法现象进 行系统研究，力图揭示城管暴力执法的成因、危害和探讨解决这一难题的对策。 本文分为三个部分： 第一部分：城管暴力执法的概念及危害。该部分首先界定了城管暴力执 法的概念，然后分析了暴力执法造成的严重后果及危害，即以暴制暴，暴力抗法 越演越烈；加重社会矛盾，影响社会稳定；执法成本越来越高；虚弱法律权威， 损害政府形象。 第二部分：城管执法中暴力执法的成因。该部分主要剖析城市管理中暴 力执法问题的原因：城管执法制度上的缺陷是根源；部分执法人员素质低下； 单向权力秩序下的特权思想影响；对城管执法权的监督不力；城管制度自身存 在缺陷等。 第三部分：减少和防止城管暴力执法的对策探讨。该部分主要探讨了减 少和防止城管执法中暴力执法的对策，包括：转变城市管理观念，即树立以人 为本的城管理念；提高城管执法队伍素质；完善城管法制，即完善城管立法， 强化城管执法监督，建立健全城管执法责任追究制度；改革城管执法体制；创 新城管方式；加强城管与商贩之间的沟通；加强宣传教育，将依法治城与以德 治城相结合；培育城市商贩的“自组织”等。 本文主要体现在四个方面：一是从公共管理的角度来探索解决城管执法 中的暴力执法问题；而是提出了“以民为本，民主参与，强化监督，落实责任， 加强宣传”等一系列改革策略和配套措施，力求解决实际问题；三是将“平衡 论”的观点引入城管执法领域，力图找到政府权力与社会组织和商贩“自组织” 力量三者作用的最佳结合点；四是行政执法方式由单方命令、行政强制到引导、 双方协商合作、行政契约，政府与相对人关系由生硬的“管理” “命令与服从” 到柔性。 关键词: 城管； 暴力执法； 危害； 原因； 对策 Abstract: Enforcing the law by the administration organ is the important component of administration work. Several years ago, our government put forward an aim “There must be laws to go by, the laws must be observed, the laws must be strictly enforced, and law- breakers must be prosecuted“. It is a guiding principle for our jury practice, having shown a clear way for our countrys legal system building, having accelerated the course of our countrys legal system building. But nowadays in China, during the course of Chinese administrative law enforcement, a lot of contradictions appear; some are quite fierce, especially in the field of city management. The violent conflicts between the law-executors and the peddlers have frequently occurred, violent law-enforcement has happened repeatedly, which gravely deviated from the target of constructing harmonious society, and endangered the stability of society, the relationship between cadres and the masses, destroyed general situation of reform, development and stability, then affected the image of our Party and government in the peoples mind. This article made a systematic and deep survey on the phenomenon of violent law enforcement in the city management by using some basic theories and methods of Administration and Jurisprudence, tried to find out the causes and results of violent law-enforcement, then explored and discussed some solutions to the problem.This article is divided into three parts except the introduction:Part I: The concept and harm of violent law-enforcement in city management. In this part, the author first made a clear definition about the violent law-enforcement, then analyzed the serious results and harms caused by violent law-enforcement, that is, bringing violence for violence; mere and more violent law-resistance; numerous bleeding conflicts; higher and higher cost of law- enforcement; challenges on the authority of laws; more and more contradictions; obstructing the development of society harmoniously and stably, etc.Part II: The main causes of violent law-enforcement in city management. This part mainly analyzed five causes of violent law-enforcement in city management: low quality of some law- executives; unreasonable checking and evaluating systems in the city management aims; Lower “special privilege“ mentality of one-way authority order; lack of strict supervision and restriction; the defection of system, etc.Part III: Discussion about the solutions of reducing and preventing violent law-enforcement in city management. This part mainly talked about the solutions of reducing and preventing violent law-enforcement in city management, including changing the concept of city management, instantly, establishing the human-oriented notion and notion of harmonious law-enforcement in city management; promoting the quality of law-executives; perfecting the laws and systems of city management, instantly, perfecting the law-making of city management, strengthening the supervision of law- enforcement in city management; building and perfecting the system of responsibility for law enforcement investigation; reforming the system of law-enforcement in city management; innovating the ways of city management; strengthening the communication between city- executives and peddlers; sharpening the propaganda and education, connecting the way of governing the city by law with the way of governing the city by moral; cultivating peddlers self-governance organizations, etc.Innovation of this thesis mainly manifests four aspects: First, from the viewpoint of neo-public administration, the author explores the ways to solve the problem of violent law- enforcement in city management; Second, the author puts forward a series of reform tactics and supporting measures, such as “people- oriented, government-leading, democratic participation, strengthening supervision, practicable responsibility, sharpening propaganda“, makes every effort to resolve the practical problems; Third, the author introduces “the Theory of balanced-development“ into the field of law-enforcement in city management, attempts to find out the best joint of government power, social organizations and peddlers self- governance organizations; Fourth, the ways of law-enforcement change from unilateral commanding, administrative compulsion to instruction, bilateral consultation, co-operation and administrative contract; the relationship between government and people changes from rigid “management and being managed“ “commanding and obedience“ to flexible, democratic “co-ordination and co-operation“, building a happy and harmonious society together. Key words: city management; violent law-enforcement; harm; solutions 一、城管暴力执法的概念及危害 （一）城管暴力执法的概念暴力，一般指对人体实行一种强力的袭击或强制。 执法，指国家机关及其工作人员执行法律、法规和规章的活动。暴力执法的概 念有狭义和广义之分。狭义的暴力执法，指公务人员在执行公务时对人实施的 违法的强力袭击或强制行为。广义的暴力执法，指公务人员在执法过程中所实 施的一切强制行为，包括合法的和非合法的强制行为。如果管理相对人故意违 反法律和城市管理规定，以暴力、威胁的方式，阻碍国家机关工作人员依法执 行公务，公安人员可以依法对其实施拘留等人身强制措施，此时的暴力执法是 应该且正当的。本文中所说的暴力执法是指公务人员在执行公务时对相对人实 施的非法侵害行为，如粗暴的对管理人进行辱骂、围殴、强行扣押、没收物品 等伤害行为和结果。 城管暴力执法，是指城市管理行政机关在开展行政执法过程中，违背法律的 规定和程序规则，对管理相对人进行辱骂、殴打、围攻、强行扣押、没收物品 等伤害行为。并非所有的暴力执法都是违法的，只有没有规定事由使用暴力， 才是违法。本文所说的城管暴力执法是指城管执法机构及其工作人员违法使用 暴力的执法过程。 （二）城管暴力执法的危害 第一，以暴制暴，暴力抗法越演越烈，流血冲突不 断。暴力执法的一个直接的逻辑结果即是暴力抗法。对于一个没有工作收入的 人来说，当他最起码的生存都不能保证，那种“你不让我活，你也别想活”的 后果就很难避免。凤凰网报道: “2011 年 7 月 26 日，贵州安顺城管在执法过程 中打死一摊贩，然后造成数千名群众围观，而旁边则有一两倒下的城管车辆” 。 此次事件给党和政府造成了极坏的影响。第二，加重社会矛盾，影响社会稳定。 中国政法大学教授马怀德在接受记者采访时说：“暴力执法，会带来暴力抗法。 ”由于城管执法的对象主要是下岗工人、无业市民和农民等为生计而从事“违 法”经营的摊点商贩