Comprehensive law-enforcement for urban management is a new kind of administrative law-enforcement pattern to upgrade legalization level in urban management work and to construct long acting mechanism for urban management. Since 1997, exploration and practice has been vigorously conducted at the level of neighborhood communities in Shanghai, which have resulted in some effectiveness, but at the same time, causing some problems. In order to further accelerate building Shanghai into a socialist modern metropolis, in 2000, Shanghai Municipal Party Committee and Shanghai Municipal Government proposed to define a target and press forward to form the comprehensive law-enforcement framework for urban management, which is in the linkage of the three levels of municipality, district and neighborhood communities, and which is also rational in labor division, is standardized and efficient. In compliance with the requirements of "Three Steps" in reform of comprehensive law-enforcement system for urban management, up to 2002, 10 downtown areas have been conducted in three different periods trial work on comprehensive law-enforcement with the theme of management on city appearance.
Comprehensive law-enforcement for urban management of this time bears the following features:
There is only main body for law-enforcement work. Division of the comprehensive law-enforcement trial spots is based on district, in which, three professional law-enforcement teams on district level (environmental sanitation department, road administration and greenery administration) neighborhood supervision team and comprehensive law-enforcement team for special area in the controlled area are merged and integrated into one unified group for law-enforcement, i.e. district urban management and supervision team. As a department directly subordinated to the government, district urban management and supervision team is a non-profitable institute with the function of managing public affairs. Neighborhood supervision team within trial spots doesn't have the qualifications to conduct administrative punishment.
Uniformity for law-enforcement system. In the district urban management and supervision team, the system of two level management is practiced, in which, supervision detachments is arranged under the general team and the detachments are sent to station at all neighborhood communities to implement comprehensive law-enforcement. Accordingly, in the work of appointing or removing some personnel, appraisal of somebody's performance or work assignment, the practice of "one veto system" at neighborhood communities is to be changed; instead, after hearing of opinion or advice from offices at neighborhood communities, the general team will be directly responsible for leadership of all affiliated supervision detachments in order to guarantee unified management district urban management team on trial spots.
Comprehensibility of law-enforcement function. District urban management team practice the power of administrative punishment within prescribed range. Comprehensive law-enforcement includes the following public places such as street front, roads, squares and residential districts. Content of law-enforcement involves management of the seven aspects, i. e., environmental sanitation, afforestation, city planning, environmental protection, water affairs, setting stands or piling objects without authorization and squatter houses. The comprehensive law-enforcement involves 12 professional local laws and regulations, 22 governmental regulations and 126 items on administrative punishment which are cited in relevant laws and regulations, so the work bears the features of "multi-functions integrated in the one team".
Flexibility in the range of law-enforcement work. Different from neighborhood supervision team who mainly practice simplified procedures, the trial spots for comprehensive law-enforcement work has been largely broadened in limit of authority for law-enforcement, i.e., they can not only undertake the law-enforcement task with simplified procedures, but also the task of ordinary procedures.
Though it is not a long time for trial spots of comprehensive law-enforcement, remarkable effects have been obtained, which are reflected as the following:
Law-enforcement system has been smoothed out and law-enforcement efficiency is greatly improved.
On one hand, in comprehensive law-enforcement job in urban management, it is improved for the situation of non-defined responsibilities and staff evading responsibilities which have been the result of over-staff in urban management law-enforcement teams on district level. The situation of disputes on trifles and frequent coordination among departments is solved. On the other hand, District urban management team change the situation that personnel feel lost at violations taking place at different neighborhood communities on the account that neighborhood community supervision teams do the renovation job in divided blocks in the past. Now, law-enforcement force of the district urban management team can be called on for comprehensive and concentrated renovation. For instance, since the establishment of Urban Management Team of Xuhui District, they have carried out the series movement plan from "No. 1 urban management" to "No. 4 urban management", and focused on renovating the troubles such as authorized vehicle cleaning stands, illegal advertisements, white pollution, unauthorized stands and squatter houses, which can't be fixed in the past when all neighborhood community supervision teams were doing their renovation job separately. Sense of overall situation, sense of responsibility and sense of service in personnel doing law-enforcement job have been largely improved, and phenomenon that "all take the responsibility for the easily fixed problems and everyone evades from the tough problems" is thoroughly stopped, thus greatly improving law-enforcement efficiency.
Law-enforcement force has been strengthened and social environment got improved.
With the trial spots of comprehensive law-enforcement work, district urban management team actively cooperate with corresponding departments, take APEC as an opportunity and investigate and punish accordingly all kinds of violations, thus achieving positive effects. Urban management team of Pudong New Area strengthen renovation on illegal stands without authorization; urban management team of Huangpu District also organize for concentrated work to renovate illegal stands set at Mid Xizang Road. Though it has not been long since Putuo team was established, they also carried out "Putuo Urban management No.1" movement, in which 4520 stands set without authorization have been banned, 250 places with piling objects have been cleaned up, 130 shops doing business in the manner of going beyond door front have been corrected and squatter houses of 768 square meters have been removed. In order to prevent the violations from coming back, all urban management teams always send their members to keep stationed at the renovated sites to consolidate the effects of comprehensive law-enforcement. After a series of important law-enforcement activities, such kind of violations which have been a trouble for a long time are effectively curbed.
Organization construction has been strengthened and quality of staff is improved.
With the training, test and going on post with certificates, personnel doing law-enforcement work have an overall understanding of the important meaning, aim and requirement in law-enforcement job, its basis and procedure contents. After the work on trial spots, district urban management teams at trial spots overcome the condition of being understaffed and strenuous work, and focus has been laid on construction of the staff in the aspects of concept, manner and professional knowledge. Systems and regulations are formulated, an open government affairs is established, and supervision job is strengthened, all of these have brought about a markedly change in conduct and discipline of the group. Law-enforcement work conducted by staff is more standardized, which is done according to the law and is humanely operated.
For over two years, trial spots for comprehensive law-enforcement work have been focused on the following four aspects: first, improve the overall quality of staff for law-enforcement job. Focus on holding the pass of transferring into new staff and of the training programs. New staff doing law-enforcement job can perform the task with a certificate after being selected and passing the test, and staff should have training on a regular basis. Second, upgrade the fairness and justness of law-enforcement activities. Perfect network for supervision of law-enforcement work. Two supervision teams working part-time are established in Shanghai, who will do irregular supervision job on law-enforcement work performed by all district urban management teams. In the contest of doing meritorious services, competition area for supervision on urban management is set up; and citizens are invited to act as volunteer supervisors. Third, do a good job for publicizing work of comprehensive law-enforcement through different channels. Take advantage of media such as broadcasting stations, television and newspapers to publicize construction of the staff performing law-enforcement work and factual effects from the job. Still, construct the linkage mechanism of coordination in labor division. Systems of joint meeting, two-way informed information and of case transfer are established. Labor division is more clearly defined and coordination is strengthened, thus forming a collective force for the law-enforcement work.
After two years work of trial spots, advantages on comprehensive law-enforcement has begun to reveal and law-enforcement force as well as efficiency is improved. Up to 2002, urban management teams of all districts have investigated and punished accordingly 460,000 cases of all kinds of violations, and make contribution to Shanghai successfully holding APEC and successful bidding for 2010 World Expo.