市域社会治理视阈下设区的市城市管理权限界定

Analysis on the authority of management of the cities divided into districts from the perspective of modernization of city governance

市域社会治理现代化的前提在于完备的城市管理制度建设,集中体现为城市管理立法的水准。在市域社会治理现代化视角下,设区的市城市管理立法在推进市域社会治理法治化、破局市域社会治理难题、完善地方立法体制等方面实现了重新定位。但由于目前理论与实务界对《立法法》第72条中的"城乡建设与管理"存在不同理解,导致出现城市管理立法精准性需求与模糊性规范存在明显矛盾,由此蕴含着引发设区的市立法权限溢出规范的风险。因而,需要对"城乡建设与管理"概念进行文本解读和法理分析,廓清其所包含的"城乡规划、基础设施建设、市政管理"三项基本权限的意义和范围,进而,在法理上准确明晰作为地方立法概念的"城市管理"权限之基本范围,即城市公用事业管理、公共设施管理、公共事务管理、环境管理、交通管理、应急管理和城市规划实施管理等内容。

From the perspective of modernization of municipal social governance, the legislation of management of the cities divided into districts has repositioned itself in promoting the legalization of municipal social governance, breaking the problems of municipal social governance, and improving the local legislative system. At present, the theoretical and practical circles have different understandings of the article No.72 "urban and rural construction and management"of the legislation law, which leads to the contradiction between the need for the precision of urban management legislation and the vague norms, and the risk of the spillover of the legislative authority of cities divided into districts. It is necessary to interpret the text and analyze the legal theory of "urban and rural construction and management", and clarify the meaning and scope of the three basic authorities including "urban and rural planning, infrastructure construction and municipal administration". Furthermore, the basic scope of authority of "city management", as a concept of local legislation, need to be clearly defined in legal theory, that is, urban public utilities management, public facilities management, public affairs management, environmental management, traffic management, emergency management and urban planning implementation management.