土地征收法律问题研究

【作者】 陈少琼；

【导师】 马怀德；

【作者基本信息】 中国政法大学 ， 宪法学与行政法学， 2007， 博士

【摘要】 土地是人类社会最重要的财产,土地征收权力作为国家或政府为了实现公共利益而被赋予的一种强制性取得土地的行政权力,实践中其侵犯行政征收相对人,即被征地人权利的现象屡屡发生。为了充分保护被征地人的权利,许多国家都对土地征收的条件、补偿、程序进行了严密规定,并建立了充分、高效的争议解决机制。本文的研究旨在探讨土地征收的理论基础,在分析我国土地征收的问题和特殊性的基础上,借鉴其他国家和地区的土地征收制度,并试图结合我国《土地管理法》的修改,重构土地征收法律制度。本文题为“土地征收法律问题研究”,共分七章。现将主要内容摘要如下:第一章为绪论。首先对土地征收的概念、性质和特征等基本理论进行论述,认为土地征收是国家或政府为了公共利益需要,依法强制转移非国家所有的土地所有权,并给予公平合理的补偿的一种具体行政行为,在行政法学上属于公用征收。土地具有自然特性和社会特性,土地资源的配置可以通过市场和政府得以实现。土地征收作为政府配置土地资源的方式,主要在于满足公共利益需要;对于非公共利益需要的项目用地必须采取市场方式予以配置。围绕土地征收法律关系中的主体:政府、集体经济组织、农民个体、需用地者之间的关系,阐述了权利与权力的关系,一方面只有完整、明晰和有效的权利,才能对权力的行使进行有效的抗衡;另一方面土地所有权作为权利的一种,随着国家运用公权力,逐步落实公共利益需要,必然会受到限制,甚至剥夺。第二章为我国土地征收的历史沿革与现存问题。我国土地征收制度是与每一时期我国国民经济发展需要和发展水平、农民集体土地所有权变革情况相适应的。在计划经济时期,经济发展较为落后,百废待兴,农村土地实行农民集体所有制,土地征收权力运用较为频繁,当时的国家建设大多是国家投资的军事国防、基础设施等,与公共利益是相一致的。在社会主义市场经济时期,投资体制、用工制度、供地制度等发生重大变化,用地主体不再局限于国家投资主体,供地制度也逐步实现市场化,但是农村土地坚持集体所有,土地征收制度依然是农村土地转为国家建设用地的唯一合法渠道,具有高度垄断性。长期以来被征地农民的土地权利弱化、残缺,农村土地和城市土地在权利、使用和管理上一直存在着严重的分立和割据。农民土地权利的这些特性造成我国当前土地征收制度存在不少问题。如土地征收条件概念不清,土地征收补偿标准不科学、过低,土地征收程序不完善,争议解决机制不足等,导致政府滥用土地征收权力,被征地农民权利被严重损害。第三章是土地征收的条件——公共利益。本章首先经分析认为我国当前土地征收条件过泛,不论项目是否为公共利益都可以启动土地征收权,不仅严重侵犯被征地农民的权益,而且有损国家和政府的权威,最终损害公共利益。在对其他国家和地区土地征收条件进行研究的基础上,主张我国土地征收条件应仅限于公共利益,不得随意突破;公共利益具有公共性、直接性、不确定性、相对性和动态性、社会负担性、法定性。在公共利益的界定方式上,可采取概括式与列举式相结合,明确土地征收权力的边界。土地征收条件即公共利益的实际界定方法主要是比例原则的使用,能采用非征收方式取得就不得使用征收,征收的范围必须严格限定公共利益需要,不得随意多征多占;要实现的公共利益必须是具体的、扎根于现实生活生产。第四章是土地征收的核心——补偿。补偿是土地征收制度的核心,有征收必须有补偿。我国当前土地征收补偿以农产值来确定土地补偿费和安置补助费,但是这种以农产值确定补偿费不科学,标准偏低;安置方式单一,抚慰色彩浓,难以保证被征地农民的生活水平不降低;征地补偿安置费管理不到位,拖欠、挪用、截流等现象屡见不鲜。其他国家和地区土地征收补偿均是建立在土地财产权和土地市场的基础上给予完全的市场价格,同时还考虑搬迁费等生活权补偿。我国土地征收补偿应以公平为原则,必须按市场价格进行补偿,补偿以实际发生的物质损失为限。在农民土地产权个体化之前,通过村民自治权和履行民主程序解决补偿费的分配问题。第五章是土地征收程序。现行土地征收程序体现了审批的高位性和用途管制制度,建立了“两公告一登记”和听证程序,但是公共利益认定程序缺失,被征地人知情权、参与权保护不足,征地后期监管缺失,征而未用、多征少用以及补偿费被克扣、挪用甚至贪污的现象严重。在程序也设定土地征收行政程序本身即赋予被征地农民权利,也是维护被征地农民权益的手段之一。因此,本文紧接阐述了土地征收行政程序,具体包括建立公共利益的认定程序、完善参与和听证程序、建立收回权制度等。第六章是土地征收争议的解决机制。权利保护的最终手段就是救济。随着我国经济和社会的发展,现有的土地征收争议解决方式简单、低效、非制度化,难以满足日益纷繁复杂的土地征收争议解决的需要。在其他国家和地区,所有与土地征收有关的争议都可以得到解决,有土地裁判所一样的专门机构解决土地征收争议,解决争议过程中注重双方协商合意解决。建议建立系统的土地征收救济体系,包括完善行政裁决制度,建立专门的土地裁判机构,将裁决的案件范围扩大至所有因土地征收的争议;完善行政监察和土地督察制度,着重监督行政裁决和司法救济没有涉及的行为;完善司法救济,将土地征收行为本身合法性和其中带有抽象行政行为的性质和特点的行为纳入诉讼审查范围。第七章是土地征收相关的制度建设。土地征收制度改革不仅仅是征地制度本身的改革,而是一揽子改革,首先要加强农村土地产权创新,包括集体土地所有权主体的再确认,赋予农户清晰、相对完整、稳定的土地权利,在征地过程中能直接参与协商、谈判;弱化或消除农村土地的保障功能,促进农村集体建设用地土地市场化,为城市经营性建设项目提供土地来源。其次,要重建我国农村土地治理框架,包括改变土地多头管理的局面,实现土地管理机构框架的合理化;协调和统一农村和城市的登记,协调和统一土地及房屋的登记,加强和统一农村土地登记制度。更多还原

【Abstract】 Land is the most important wealth.Land expropriation is the power of compulsory acquiring land for the public benefit by the state or the government.In practice,it always infringes the property rights.Many countries stipulate the conditions,compensations and procedures of land expropriation strictly and clearly and establish the full and efficient remedies.This paper aims to study the theoretical foundations of land expropriation and leam from the other countries and regions and reconstruct the legal system of land expropriation.The title of this paper is "Legal System of Land Expropriation". There are seven parts in this paper.Chapter one is an introduction.Firstly,we clarify the notion,character of land expropriation and believe that land expropriation means that the state or the government acquires land compulsorily for the public benefit and in accordance with the law,and pays just and reasonable compensation. It will belong to the public expropriation in the administrative law.Based on the study of natural and social characters of land,land expropriation,as one way of allocation of land,shall meet the public benefit.As for the relations of fight and power,only the full,clear and effective rights can contend with the power,while the rights shall be defined or expropriated when the government exercises the power for the public benefit.Chapter two is the historic changes and existing problems of Chinese land expropriation.The system of land expropriation changes and develops with the needs and standards of economy development,and the character of land rights of rural land owned by the collective.During the planning economy period,backward economy demands to develop military,defense and infrastructure and so on,which makes the power of land expropriation exercised all the time.During the market economy period,the system of investment and employment policies changed,but the rural land is still owned by the collective and is not allowed to sell,and land expropriation is still the unique channel by which the rural land is changed to the state-owned land for development.The rights of land owned by the collective are poor and imperfect and is opposed to the city land.All of the above cause many problems for the system of land expropriation. Land can be expropriated without no condition limits,and the compensation is too low to make the peasants’ living standard unchanged. The procedures are incomplete and ways of resolving issues are lack, which make the government abuse the power of land expropriation and harm the rights severely.Chapter three is the conditions of land expropriation.The current scope of land expropriation is so wide that the power can be exercised for any project no matter whether it is for public benefit.This will harm the rights and interests of the expropriated,and weaken the authority of the government,and injure the public benefit eventually.Based on the study on the system of other countries and regions,we believe that land shall be expropriated only for the public benefit.Summary and list will be used to define the public benefit,which will clarify the boundary of power. Proportion principle will used to make clear whether the project is for the public benefit which is rooted in the real life.Chapter four is the core of land expropriation—compensation.There is land expropriation,there will be compensation.Compensations are based on the agricultural products which is too unreasonable and low to meet the original living standard of the peasants.Compensations can not always be distributed to the peasants fully and timely.In other countries compensations are based on market value,and compensations for living rights are always taken into account.In our country,the land shall be expropriate with just compensation which is based on the market value and the losses which cause really.The distribution of compensation will be resolved through self-government before the land property is owned by the individual.Chapter five is the procedure of land expropriation.The main character of current procedure is approval with higher level and land use control.But the procedure of recognition of public benefit is lack,the protection of the rights of knowing facts and participating is poor,the check and control on the later period of land expropriation is poor.The phenomenon of expropriating while no use or expropriating more while use less,and compensation borrowed or corrupted are serious.Clear procedure is one of the best ways for peasants to protect their rights.We should make our land expropriation system perfect,including setting up the procedure of recognition of public benefit,streamlining the procedure of participation, establishing the system of taking back.Chapter six is the mechanism for resolving the disputes.The last resort for the protection of rights is remedy.With the development of economy and society,the nowadays ways are too simple,non-systematic to resolve so many complicated disputes about the procedure of recognition of public benefit.Every dispute about land expropriation can be resolved by land tribunals who have expertise about land in other countries and regions. More attention will be paid to resolving problems through discussion and concordance.Establishing systematic remedies for land expropriation is recommended,including setting up special land tribunals to decide all the disputes about land expropriation,improving administrative supervision who will deal with those disputes mainly about officers’ actions outside the judicial remedy.The decision about land expropriation,no matter it is concrete or abstract action,will be checked by court.Chapter seven is some systems related to land expropriation.The reform of land expropriation system is not only itself,it should be a series of systems reform.Firstly,rural land ownership shall be reconstructed, including confirming the body of the collective land ownership,endowing the peasants or farm families with clear,comparatively complete and stable land rights so that being able to discuss the compensation directly, weakening or removing the function of social welfare and encouraging the marketing of land owned by the collective.Secondly,the framework governing rural land shall be reconstructed,including streamlining the framework,integrating the record between rural and city,between land and house.更多还原