流浪动物管理中的行政执法困境与优化路径研究

Research on the Operational Challenges and Optimization Paths of Administrative Law Enforcement in Stray Animal Management

摘要: 随着生活水平不断提高，养宠物的人群在全国不断扩大，很多国人将猫狗视作家庭成员，在情感上有很深的寄托。2020年，继新版《国家畜禽遗传资源目录》生效后，农业农村部明确将犬猫界定为伴侣动物，从而排除了它们作为畜禽的地位。然而近年来我国城市流浪猫狗数量激增，引发了公共安全、卫生、动物福利和伦理等多重社会治理危机。本文锚定行政执法新视角，以问题–成因–路径为逻辑主线，揭示执法乱象背后的职权配置缺陷与程序失范，从行政组织法、程序法维度解剖制度病灶，提出以专项立法为先导、数字治理为工具、协同治理为支撑的法治化方案，助推建设“人与动物和谐共生”的现代化治理体系。

Abstract: With the continuous improvement in living standards, the population of pet owners has been expanding nationwide, and many Chinese citizens regard cats and dogs as family members, forming deep emotional bonds with them. In 2020, following the enactment of the revised National Catalog of Animal Genetic Resources, the Ministry of Agriculture and Rural Affairs explicitly classified dogs and cats as companion animals, thereby excluding their status as livestock or poultry. However, in recent years, China has witnessed a surge in urban stray cats and dogs, triggering multifaceted societal crises concerning public safety, hygiene, animal welfare, and ethics. This paper anchors a novel perspective of administrative law enforcement, adopting a “Problem-Cause-Solution” logical framework. It exposes operational deficiencies in authority allocation and procedural irregularities behind chaotic enforcement practices. By dissecting institutional flaws through the lenses of administrative organizational law and procedural law, the study proposes a legal framework centered on: Specialized legislation as the cornerstone, Digital governance as the implementation tool, Collaborative governance as the sustainable support. This tripartite approach aims to advance the modernization of governance systems toward harmony between humans and animals.