违法建设强制拆除机制的困境与出路——兼论《行政强制法》第44条的修改

Predicament and Solution to Mandatory Demolition System for Illegal Construction——Also on the Amendment of Article 44 of the Administrative Enforcement Law

违法建设是城乡治理中的一大顽疾,而从实践情况来看,《行政强制法》所构建的违法建设强制拆除机制已经陷入了困境。严格遵循法定程序强制拆违,则要付出巨大的执行成本,于是,在违法拆除成本更小、收益相差无几的现实面前,行政机关往往选择违反强制拆违的法定程序。产生违法建设强制拆除困境的制度根源在于,我国《行政强制法》规定的强制拆违特殊程序本身存在内在缺陷,立法价值上对公共利益与个人利益、程序公正与行政效率的选择失衡。要在相互冲突的利益关系和价值取向中实现动态平衡,推动行政强制拆违机制走出困境,应当以类型化思路重构强制拆违程序,并采取综合措施降低强制拆除成本和增加违法建设成本。

Illegal construction has been a major and stubborn problem in the governance of urban and rural areas. From a practical point of view, the mandatory demolition mechanism for illegal construction as stipulated by the Administra- tive Enforcement Law has already been caught in a predicament. To strictly follow the statutory procedures for mandatory demolition means a huge cost of implementation. Therefore, facing the reality where illegal demolition costs less yet with al- most the same amount of return, the administrative authorities tend to opt for the violation of the legal procedures for manda- tory demolition. The institutional origin of the illegal demolitions lies in the intrinsic defects of the special procedure of mandatory demolition provided by the Administrative Enforcement Law, and the unbalanced choice between public interests and personal interests, procedural fairness and administrative efficiency in legislative values. In order to realize the dynamic balance among the conflicting interests and values, and to lead the administrative mandatory demolition mechanism out of the predicament, we should reconstruct the mandatory demolition procedures with typical thinking, and take comprehensive measures to reduce the costs of mandatory demolition and increase the costs of illegal construction.