基于问卷调查的土地督察机构改革设想

The Reform Idea of Land Supervision Agency Based on Questionnaire

为遏制地方政府为主体的土地违法行为,2006年土地督察制度应运而生。经过七年的实践,土地督察制度在耕地保护、土地市场监管、土地调控等方面取得了一定的成效,然而实施绩效与中央政府及社会各界的期待尚有很大差距。土地督察机构不够独立是导致当前土地督察效率不高的重要原因,土地督察机构名义上隶属于国务院,实质上隶属于国土资源部,导致当前土地督察制度效率不高,为此研究土地督察机构改革,旨在为未来土地督察机构改革提供借鉴和参考。本文从行政监督理论出发,界定出我国土地督察权的理论内涵是行政内监督。接着对建立相对独立土地督察机构的理论依据(行政三分制)和实践参考(审计监督)加以分析,通过对土地督察与审计监督的比较分析,可知审计监督和国家土地督察都属于行政内监督制度,两者具有行政内监督共性,故审计监督机构改革的成功经验能为我国土地督察机构改革提供实践参考,审计署脱离财政部之后监督效率大大提高,为此提出同属于行政内监督的土地督察机构应该和行使执行权的国土资源部相分离的改革设想。在前文研究分析的基础上,提出了四种可能的土地督察机构脱离国土资源部的改革方案,分别是:①成为直接隶属于国务院的机构;②成为隶属于国务院的综合督察机构;③成为国家监察部的一个职能部门;④成为隶属于全国综合督察委员会的机构。为了便于决策时优选土地督察机构改革方案,采取了问卷调查法进行研究,因为问卷调查的结果可以对机构改革设想的可行性和时序安排进行论证分析。最后得出以下结论:①土地督察机构属于行政内监督机构,应脱离国土资源部独立出来,提出的四种土地督察机构改革方案能为决策层提供一些参考和思路。②四种土地督察机构改革方案各有其优缺点,实施难度也不一样,中央政府决策时需根据实际情况不同时期选择不同的改革方案,土地督察机构改革过程中还需谨慎防范陷入"制度陷阱"。

To restrain the illegal land use by the local government,land supervision system came into being in 2006.After its practice for seven years,the land supervision system has succeeded in some aspects such as farmland protection,land market regulation,land regulation.However,the effect of implementation is far from the expectation of the central government as well as the society.The limited independence of the land supervision mechanism is the major cause of its ineffectiveness.Land supervision institution is affiliated to the state council nominally,yet belongs to the ministry of land and resources substantially.This kind of affiliation hindered its independence and further resulted in its ineffectiveness.Therefore,the paper focuses on the reform idea of the land supervision agency detaching from the ministry of land and resources,in order to provide reference for reforming the land supervision agency in the future.Firstly,we have some researches on theoretical concepts of the administrative supervision,find out the connotations of land supervision,and then analyze the theoretical basis of establishing a relatively independent supervision agency and the relevant reference （auditing supervision）.By comparative analysis regarding land and auditing supervision,it can be found that they beth belong to the administrative supervision system,and have some common characters.It shows that the reform of auditing supervision bodies can provide a reference for the reform of the land supervision agency.After detaching from the ministry of finance,the efficiency of audit agency greatly improved.We thus put forward the reform idea of the land supervision institution separating from the ministry of land resources.Finally,based on the earlier research,we propose four reform programs regarding the land supervision agency detaching from the ministry of land and resources：（1） being directly affiliated to the institution of the state council; （2） belonging to the comprehensive supervision department under the state council; （3） becoming a functional departments of the ministry of supervision;（4） establishing the national comprehensive supervision committee.Questionnaires were designed to carry out feasibility analysis.Conclusions：（1） The land supervision agency which belongs to supervision institution should separate from the ministry of land and resources.（2）The four reform programs have different features,which provide the reference and thought for decision-makers.And the implementation difficulty of four reform programs is not the same.During different periods,the selection of reform programs by the central government should be based on the actual situation.And institutional reform needs prevent from ‘ institutional trap’.