从城市管理走向城市治理：完善城管综合执法体制的路径选择

城管部门和城管综合执法体制是在我国特殊历史条件下选择形成的，有其存在的理据和历史贡献，也有先天不足与后天失调的问题。其问题表现为城管执法权力受限，执法依据和手段不足，管理范围广，任务重，机构性质和公务员身份模糊，经济地位、福利、工作条件、队伍建设没有保障。而地方政府给城管设定的城市管理目标与公民生存目标存在太大的差距。城管执法时面临秩序与生活两种需求的矛盾，执法当中极易触发暴力倾向。必须正视城管执法体制存在的尖锐矛盾，尽快明确某个中央部委承担城市治理的统筹规划、指导协调等职能，这是城管体制改革的要务。要树立大城管理念和共同治理理念，树立以人为本、柔性执法理念，形成城管部门与其他执法部门的更大合力，创建一条政府负责、公众参与、政民合作、民主行政的城市管理法治化路径。

On Improving the Overall Law Enforcement System of Urban Management --Path Selection from Urban Management towards Urban Governance

Urban management departments and were formed in the special historical conditions by the overall law enforcement system of urban management selection. They have existed justifications and historical contributions, but they also have inherent problems with acquired disorders. Its problems manifested as law enforcement powers of urban management limited, inadequate law enforcement basis and means, a wide range management and heavy task, vague nature of organization and the civil servants, economic status, benefits, working conditions, team building are not guaranteed. There is much difference between the management ob- jectives set by the local governments and citizens＇living targets. Law enforcement of urban management faces two contradictions of demand which can easily trigger violent tendencies. We must face up to the sharp con- flicts existed in the law enforcement system of urban management, clear up as soon as one of the central minis- tries undertaking overall planning of urban governance, guidance and coordination functions, and this is the priorities to the law enforcement system of urban management. We should establish a large urban concept and shared governance philosophy, and establish the concept of people -oriented and flexible law enforcement, to form greater force from the urban management departments and other law enforcement agencies, and to create a legalization path of government responsibility, public participation, politics and people cooperation, urban management of democratic administration.