中國大陸「城管」相對集中行政處罰權制度之初探

Introduction of the Relatively Concentrated Administrative Punishment of City Management Official in China

鄧學良(Shuai-Liang Deng) ； 楊婉莉(Wan-Li Yang)

《社科法政論叢》 4期 (2016/03) Pp. 57-87

摘要

中國大陸隨經濟之快速發展，沿海一帶經濟起飛，農村人口湧入城市，流動攤販、違建、環境與交通等城市管理問題隨之產生。面臨城市管理、公共安全與吸引外資等龐大國家利益、公共利益之需要，在法治化非完備然卻有事實需要，而在現實城市治理過程中復生多頭馬車，或無人管理之亂象，中國大陸國務院遂在法治規劃方向尚未明確之情形下，基於現實之需要，而於1990年代末期開始辦理「城管」之試點，並欲以帶動行政執法體系之發展。「城管」之內涵為何？甚至其「職能」範疇究竟為何，亦因城市而異；又因幾起重大社會事件，引起輿論注目後，城管所生定位、權責等問題遂浮上檯面。本文藉由事件之分析瞭解「國家角色」之轉變，並建議在公權維護、市容、市政之強制力實施上，宜審慎檢討直接強制之採行，嚴守行政處罰法第4條之比例原則與公開原則。

關鍵字

城管執法 ； 相對集中行政處罰權 ； 行政強制措施 ； 行政處分 ； 行政執行

並列摘要

With the fast-growing economy in the People's Republic of China, economy in the costal areas starts soaring and people from rural areas begins migrating into cities; the problems related to city-management, including hunting peddler, illegal construction, pollution and traffic have also followed. In order to cope with such complicated problems, various types of city-management system co-exist in cities; however, these systems function not only distinctively from city to city but did not base upon the rule of law. To tackle problems of city-management, public security and to attract foreign investments, the Chinese State Council of the P.R.C. launched the City-Management Pilot Program at the end of 1990s without a further blue print for related sound legal system. What is the City-Management Pilot Program and City Management Official exactly? What are the functions of it? The systems of city-management are different from city to city. Due to several social disorder events which drew lot of attentions form the media and the public, the related issues of the context, position and responsibility of the City Management Official (Chengguan) have also been revealed. By analyzing several crucial social events, the transformation of the role that the nation plays has been observed in this paper. In terms of compulsory administrative measures of enforcing public power, city image and government administration, a suggestion to abort direct mandatory force is also discussed, as well as to follow principle of proportionality and the principle of transparency in Article 4 of Administrative Punishment Law of the P.R.C.

並列關鍵字

Law Enforcement of Urban Management ； the Relatively Concentrated Power of Administrative Penalty ； Compulsory Administrative Measures ； Administrative Disposition ； Administrative Enforcement