比例原则在我国城市管理综合执法中的运用
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摘要
随着我国经济社会的发展和城市化进程的逐步加快,城市管理面临的难题越来越大,所引起的社会问题也日趋复杂。一方面流动摊贩的数量越来越多,面临的生存压力越来越大,另一方面城管执法人员与流动摊贩之间总是上演暴力事件或是猫鼠大战,在城市管理工作部门面临着前所未有压力的同时,中国“城管”的管理方式和管理手段也受到了广泛的质疑。流动摊贩的生存权、城管人员的执法权、城市的公共秩序和市容环境之间的矛盾日趋尖锐,渐似变得越发不可调和。如何寻找合理的平衡点来平衡彼此的关系,实现设立城市管理的目的和价值?我们提出将比例原则运用到城市管理中,采用目的——手段——目的的方法指导目前的执法实践,从而化解目前城管执法的困境。
本文除引言和结语外,共分五个部分。
第一部分首先介绍了比例原则的渊源、概念和内涵,展现了被称为行政法帝王条款的比例原则的历史渊源和其丰富的内容,对其各个子原则及其关系进行了逐项阐述并分析此原则的在限制行政权力、维护公平正义、保障个人权益方面的重大价值,为下文的深入探讨打下基础。
第二部分通过对我国现行城管执法现状和挑战的分析,通过对国外城市管理方式和手段的考察,指出了在我国现行的城市管理中引入比例原则的必要性。
第三部分列举了城管执法遭遇暴力抗法的案例及对其的思考,将妥当性原则在我国城市管理执法中的适用进行了相关的分析,对我国设立城市管理部门的初衷和真正目的进行了探讨,提出首先要改变原有的城市管理的目的和错误理念,为实现城市秩序、保障公民自由的城市管理目的而完善、规范执法手段。
第四部分列举了郑州城管打人,激怒群众掀车的案例和香港地区管理流动摊贩中一个教育、感化发挥重要作用的案例及对案例各自的思考,提出在不违背和减弱城市管理效果的前提下,通过对比应在实现法律目的的众多方式中应选择最为温和的、对相对人权益侵犯最轻或权益侵害最小的方式和手段,并对城管自由裁量权和执法手段的规范问题进行了探讨。
第五部分列举了关于城管暴力拆迁的案例及其思考。指出狭义比例原则包含两层内容,即公共利益的保护与私人益的保护之间要形成合适比例,措施的负作用与措施所达成的目的之间要有合适的比例。指出比例原则的核心在于通过目的与手段间的考量,兼顾国家、社会及公共利益,同时在不妨害第三人权利的前提下,尽量减少与公共利益与公民权利之间的冲突,在实现城市秩序的同时也应该注意保护公民的自由权益,从而确保基本人权的实现。
As China's economic and social development and urbanization gradually accelerate, urban management challenges facing the growing, caused by social problems are becoming increasingly complex. The one hand, more and more number of mobile vendors, facing increasing pressure to survive, always staged violence or cat and mouse war between the other hand, urban management and law enforcement officers and street vendors in urban management department is facing an unprecedented pressure,"urban management" approach to management and management tools have also been widely questioned. The right to life of the street vendors, of police officers enforcement powers, the city's public order and appearance and environmental conflicts intensify, gradually seems to become more and more irreconcilable. How to find the proper balance to balance the relationship between each other, to achieve the purpose and value of the establishment of urban management? We propose the use of the principle of proportionality to urban management, the use of purpose-means-the purpose of the method to guide the practice of law enforcement, to resolve the current plight of the urban management and law enforcement.
In addition to the introduction and conclusion, this article is divided into five parts.
The first part introduces the principle of proportionality origin, concept and content, to show what is known as the principle of proportionality of administrative law provisions imperial historical origins and its rich content and its relationship to its various sub-principles were elaborated and analyzed itemized This policy is to limit the executive power, maintain fairness and justice, protection of individual rights and interests of substantial value for the depth below the foundation.
By the second part of our current situation and the challenges of urban management and law enforcement analysis, through the foreign city management methods and means of investigation, pointed out in our current urban management in the necessity of introducing the principle of proportionality.
The third part of the city inspectors cited the cases of violence against the law and its thinking, the principle of the proper law enforcement in our city management application for the relevant analysis, the establishment of urban management department of the original intention and purpose of a real discussed, and first of all to change the original purpose of urban management and error concept for the realization of urban order and protect civil liberties urban management purposes to improve and standardize law enforcement.
Part IV lists the Zhengzhou urban beat, enraged masses lift car and the Hong Kong case of mobile vendors in a regional management education, probation play an important role in their respective cases and thinking of the case presented and weakened without violating the premise of urban management effectiveness, by contrast should be many ways to achieve legal purposes should select the most moderate of the relative equity or equity against violations of the smallest and lightest of ways and means, and urban management and law enforcement discretion means to regulate issues were discussed.
Section V lists the cases of demolition on urban violence and Thoughts. Pointed out that the principle of proportionality contains two narrow content, namely the protection of the public interest and the private interest of the protection of the right to be formed between the ratio of the negative effects of measures and measures should be reached between the purpose of the right ratio. Pointed out that the principle of proportionality lies between ends and means through considerations, taking into account national, social and public interests, and without prejudice to the rights of third parties, under the premise of public interest and to minimize the conflict between civil rights, in the realization of the city order should also be to protect civil liberties interests, ensuring the realization of basic human rights.
本文除引言和结语外,共分五个部分。
第一部分首先介绍了比例原则的渊源、概念和内涵,展现了被称为行政法帝王条款的比例原则的历史渊源和其丰富的内容,对其各个子原则及其关系进行了逐项阐述并分析此原则的在限制行政权力、维护公平正义、保障个人权益方面的重大价值,为下文的深入探讨打下基础。
第二部分通过对我国现行城管执法现状和挑战的分析,通过对国外城市管理方式和手段的考察,指出了在我国现行的城市管理中引入比例原则的必要性。
第三部分列举了城管执法遭遇暴力抗法的案例及对其的思考,将妥当性原则在我国城市管理执法中的适用进行了相关的分析,对我国设立城市管理部门的初衷和真正目的进行了探讨,提出首先要改变原有的城市管理的目的和错误理念,为实现城市秩序、保障公民自由的城市管理目的而完善、规范执法手段。
第四部分列举了郑州城管打人,激怒群众掀车的案例和香港地区管理流动摊贩中一个教育、感化发挥重要作用的案例及对案例各自的思考,提出在不违背和减弱城市管理效果的前提下,通过对比应在实现法律目的的众多方式中应选择最为温和的、对相对人权益侵犯最轻或权益侵害最小的方式和手段,并对城管自由裁量权和执法手段的规范问题进行了探讨。
第五部分列举了关于城管暴力拆迁的案例及其思考。指出狭义比例原则包含两层内容,即公共利益的保护与私人益的保护之间要形成合适比例,措施的负作用与措施所达成的目的之间要有合适的比例。指出比例原则的核心在于通过目的与手段间的考量,兼顾国家、社会及公共利益,同时在不妨害第三人权利的前提下,尽量减少与公共利益与公民权利之间的冲突,在实现城市秩序的同时也应该注意保护公民的自由权益,从而确保基本人权的实现。
As China's economic and social development and urbanization gradually accelerate, urban management challenges facing the growing, caused by social problems are becoming increasingly complex. The one hand, more and more number of mobile vendors, facing increasing pressure to survive, always staged violence or cat and mouse war between the other hand, urban management and law enforcement officers and street vendors in urban management department is facing an unprecedented pressure,"urban management" approach to management and management tools have also been widely questioned. The right to life of the street vendors, of police officers enforcement powers, the city's public order and appearance and environmental conflicts intensify, gradually seems to become more and more irreconcilable. How to find the proper balance to balance the relationship between each other, to achieve the purpose and value of the establishment of urban management? We propose the use of the principle of proportionality to urban management, the use of purpose-means-the purpose of the method to guide the practice of law enforcement, to resolve the current plight of the urban management and law enforcement.
In addition to the introduction and conclusion, this article is divided into five parts.
The first part introduces the principle of proportionality origin, concept and content, to show what is known as the principle of proportionality of administrative law provisions imperial historical origins and its rich content and its relationship to its various sub-principles were elaborated and analyzed itemized This policy is to limit the executive power, maintain fairness and justice, protection of individual rights and interests of substantial value for the depth below the foundation.
By the second part of our current situation and the challenges of urban management and law enforcement analysis, through the foreign city management methods and means of investigation, pointed out in our current urban management in the necessity of introducing the principle of proportionality.
The third part of the city inspectors cited the cases of violence against the law and its thinking, the principle of the proper law enforcement in our city management application for the relevant analysis, the establishment of urban management department of the original intention and purpose of a real discussed, and first of all to change the original purpose of urban management and error concept for the realization of urban order and protect civil liberties urban management purposes to improve and standardize law enforcement.
Part IV lists the Zhengzhou urban beat, enraged masses lift car and the Hong Kong case of mobile vendors in a regional management education, probation play an important role in their respective cases and thinking of the case presented and weakened without violating the premise of urban management effectiveness, by contrast should be many ways to achieve legal purposes should select the most moderate of the relative equity or equity against violations of the smallest and lightest of ways and means, and urban management and law enforcement discretion means to regulate issues were discussed.
Section V lists the cases of demolition on urban violence and Thoughts. Pointed out that the principle of proportionality contains two narrow content, namely the protection of the public interest and the private interest of the protection of the right to be formed between the ratio of the negative effects of measures and measures should be reached between the purpose of the right ratio. Pointed out that the principle of proportionality lies between ends and means through considerations, taking into account national, social and public interests, and without prejudice to the rights of third parties, under the premise of public interest and to minimize the conflict between civil rights, in the realization of the city order should also be to protect civil liberties interests, ensuring the realization of basic human rights.
引文
1 蔡振荣.：《论比例原则与基本人权之保障》.警政学报,1990(17)：48
1 彭云业,张慧平.：《行政滥用职权之正确界定》[J].山西大学学报2001,(3)：69-71.
2 姜昕：《比例原则研究——个宪政的视角》[H].北京,法律出版社,2008：16.
3 陈新民.：《行政法学总论》[M].台北：三民书局,1995.
1 陈新民：《宪法基本权利之基础理论》(下册),山东人民出版社1990年版,第242页·
2 黄俊杰：《特别公课之宪法基础研究》载“国立”中正大学法学期刊第五期
3 陈新民：《德国公法基础理论》(下册),山东人民出版社2001年版,第360页
1 陈新民：《德国公法学基础理论》(下册),山东人民出版社2001年版,第368页
2 谢世宪：《论公法上的比例原则》载城仲模主编：《行政法之一般法的原则》,台湾三民书店
1 陈新民：《德国公法学基础理论》(下册),山东人民出版社2001年版,第369-389页
1 《中华人民共和国行政处罚法》第16条
1 王春业：《论城管行政执法人员形象的重塑》期刊论文《西部法学评论》2012
1 (英)威廉.韦德,徐炳：《行政法.》北京：中国大百科全书出版社,1997,55
1 王春业：《论城管行政执法队伍形象的重塑》博士研究生论文《西部法学评论》2012年
1 许下镇：《比例原则的法理研究》[吉林大学博士学论文].吉林：吉林大学法学院,2002,100
2 (德)拉伦兹：《法学方法论》陈爱娥译,商务印书馆2003年版
1 查尔斯.霍顿.库利：《人类本性与社会秩序》,华夏出版社,1999年版,第300-301贞
2 萨谬尔.亨廷顿：《变动社合中的政治欲序》.三联书店.1989年版.第7页
1 (英)阿克顿：《自由与权力》.商务印书馆,2001年版,第311,315页.
[1]蔡振荣.《论比例原则与基本人权之保障》,《警政学报》,1990(17)：48
[2]彭云业.《张慧平.行政滥用职权之正确界定[J].山西大学学报2001,(3)：69-71.
[3]姜听.《比例原则研究——个宪政的视角[H].北京,法律出版社,2008,16.
[4]陈新民.行政法学总论[M].台北：三民书局,1995.
[5]陈新民.《宪法基本权利之基础理论》(下册),山东人民出版社1990年版,
[6]陈新民.《德国公法基础理论》(下册),山东人民出版社2001年版,第360页
[7]黄俊杰.《特别公课之宪法基础研究》载“国立”中正大学法学期刊第五期
[8]谢世宪.《论公法上的比例原则》载城仲模主编：《行政法之一般法的原则》,台湾三民书店
[9]查尔斯.霍顿.库利：《人类本性与社会秩序》,华夏出版社,1999年版,
[10]拉伦兹(德).《法学方法论》陈爱娥译,商务印书馆2003年版300-301页
[12]萨谬尔.亨廷顿.《变动社合中的政治秩序》.三联书店.1989年版.第7页
[13](英)阿克顿.《自由与权力》.商务印书馆,2001年版,第311,315页.
[14(英)威廉.韦德,徐炳.《行政法》北京：中国大百科全书出版社,1997,55
[15]《中华人民共和国行政处罚法》第16条
[1]余小为.《论比例原则在规范城管综合行政执法自由裁量权中的适用》载《法制与社会》2008-07-05
[2]王春业.《论城管行政执法队伍形象的重塑》博士研究生论文载《西部法学评论》2012年
[3]蔡克蒙.《中国城管能从外国学习哪些经验》载《法学》2010-10-20
[4]许玉镇.《比例原则的法理研究》(吉林大学博士学论文]吉林大学法学院,2002,100
[5]田润峰.《论秩序》(导师：门忠民)-《陕西师范大学硕士论文》-2002-04-01
[6]张毅苦.《新加坡街头摊贩管理》,http://www.istis.sh.cn/list/list.aspx? id=4104,2009年2月22日访问.
[7]郑州城管执法殴伤摊贩夫妇围观市民掀翻执法车http://www.shangbw.com/news/zhib ozhengzhou/2010/1021/689.html)》-2012-05-26
[8]详见《<城管执法操作实务)曝光》.凤凰资讯http://news.ifeng.com/photo/society /200904/0421_1400_1118711.shtml.发布日期:2009-04-21
[9]对峙城管三小时自焚成都拆迁户唐福珍死亡.http://news.dichan.sina.com.cn/200 9/12/03/92762.html
1 彭云业,张慧平.：《行政滥用职权之正确界定》[J].山西大学学报2001,(3)：69-71.
2 姜昕：《比例原则研究——个宪政的视角》[H].北京,法律出版社,2008：16.
3 陈新民.：《行政法学总论》[M].台北：三民书局,1995.
1 陈新民：《宪法基本权利之基础理论》(下册),山东人民出版社1990年版,第242页·
2 黄俊杰：《特别公课之宪法基础研究》载“国立”中正大学法学期刊第五期
3 陈新民：《德国公法基础理论》(下册),山东人民出版社2001年版,第360页
1 陈新民：《德国公法学基础理论》(下册),山东人民出版社2001年版,第368页
2 谢世宪：《论公法上的比例原则》载城仲模主编：《行政法之一般法的原则》,台湾三民书店
1 陈新民：《德国公法学基础理论》(下册),山东人民出版社2001年版,第369-389页
1 《中华人民共和国行政处罚法》第16条
1 王春业：《论城管行政执法人员形象的重塑》期刊论文《西部法学评论》2012
1 (英)威廉.韦德,徐炳：《行政法.》北京：中国大百科全书出版社,1997,55
1 王春业：《论城管行政执法队伍形象的重塑》博士研究生论文《西部法学评论》2012年
1 许下镇：《比例原则的法理研究》[吉林大学博士学论文].吉林：吉林大学法学院,2002,100
2 (德)拉伦兹：《法学方法论》陈爱娥译,商务印书馆2003年版
1 查尔斯.霍顿.库利：《人类本性与社会秩序》,华夏出版社,1999年版,第300-301贞
2 萨谬尔.亨廷顿：《变动社合中的政治欲序》.三联书店.1989年版.第7页
1 (英)阿克顿：《自由与权力》.商务印书馆,2001年版,第311,315页.
[1]蔡振荣.《论比例原则与基本人权之保障》,《警政学报》,1990(17)：48
[2]彭云业.《张慧平.行政滥用职权之正确界定[J].山西大学学报2001,(3)：69-71.
[3]姜听.《比例原则研究——个宪政的视角[H].北京,法律出版社,2008,16.
[4]陈新民.行政法学总论[M].台北：三民书局,1995.
[5]陈新民.《宪法基本权利之基础理论》(下册),山东人民出版社1990年版,
[6]陈新民.《德国公法基础理论》(下册),山东人民出版社2001年版,第360页
[7]黄俊杰.《特别公课之宪法基础研究》载“国立”中正大学法学期刊第五期
[8]谢世宪.《论公法上的比例原则》载城仲模主编：《行政法之一般法的原则》,台湾三民书店
[9]查尔斯.霍顿.库利：《人类本性与社会秩序》,华夏出版社,1999年版,
[10]拉伦兹(德).《法学方法论》陈爱娥译,商务印书馆2003年版300-301页
[12]萨谬尔.亨廷顿.《变动社合中的政治秩序》.三联书店.1989年版.第7页
[13](英)阿克顿.《自由与权力》.商务印书馆,2001年版,第311,315页.
[14(英)威廉.韦德,徐炳.《行政法》北京：中国大百科全书出版社,1997,55
[15]《中华人民共和国行政处罚法》第16条
[1]余小为.《论比例原则在规范城管综合行政执法自由裁量权中的适用》载《法制与社会》2008-07-05
[2]王春业.《论城管行政执法队伍形象的重塑》博士研究生论文载《西部法学评论》2012年
[3]蔡克蒙.《中国城管能从外国学习哪些经验》载《法学》2010-10-20
[4]许玉镇.《比例原则的法理研究》(吉林大学博士学论文]吉林大学法学院,2002,100
[5]田润峰.《论秩序》(导师：门忠民)-《陕西师范大学硕士论文》-2002-04-01
[6]张毅苦.《新加坡街头摊贩管理》,http://www.istis.sh.cn/list/list.aspx? id=4104,2009年2月22日访问.
[7]郑州城管执法殴伤摊贩夫妇围观市民掀翻执法车http://www.shangbw.com/news/zhib ozhengzhou/2010/1021/689.html)》-2012-05-26
[8]详见《<城管执法操作实务)曝光》.凤凰资讯http://news.ifeng.com/photo/society /200904/0421_1400_1118711.shtml.发布日期:2009-04-21
[9]对峙城管三小时自焚成都拆迁户唐福珍死亡.http://news.dichan.sina.com.cn/200 9/12/03/92762.html