土地“新政”导向下农村建设用地整理之法治考量

Legal Perspectives of Rural Construction Land Readjustment under the "New Policies"

在新农村建设和城乡统筹发展背景下,农村建设用地整理是促进节约集约用地、破解土地供需矛盾的有效途径和重要举措;在土地"新政"导向下,农村建设用地整理无现成路径或既定模式可循,其实施导致土地产权性质、归属及客体(地块)的调整,将带来诸多利益关系的冲突与协调;其政策灵活性容易被曲解及违规滥用并演变成"掠夺"甚至于"浩劫"农民土地权益的"村庄撤并圈地"运动。在相关立法调整不到位特别是农民土地权益保护法律机制欠缺的情况下,应充分认识到农村建设用地整理的种种掣肘因素、法律风险及政策实施障碍。农村建设用地整理不能依赖行政强制,而要在法治理念下依靠法律制度设计完善和实施机制创新,予以积极引导、正确调整及有效规制。

Being an effective way and an important measure to save land as well as to ease the tension between land supply and land demand,the readjustment of rural construction land occupies a strategic position in the new rural construction and rural-urban comprehensive developments.As a totally new measure,it has no ready-made path or mode to follow.It would possibly lead to the adjustments in the character,the attribution,and the objection of the land ownership,and thus may result in many benefit conflicts.As a new land policy,its flexibility may be easily misinterpreted as a means to expropriate land or even as a land-enclosure movement to rob peasants of land benefits.Given the fact that the relevant law and policy are still not mature,especially that the law mechanism for protecting peasants＇ land rights is imperfect,it is necessary to fully understand the constraint factors,the law risks,and the policy barriers of the readjustment on rural construction land.It should not depend on the administrative force but should rely on the positive guidance,correct adjustments,and effective regulation of law improvements and policy mechanism innovation,which should be in accordance with the rule of law.