城乡规划补偿的功能落空与制度实现

The Obstacles and Conditions of Planning Compensation System in Urbanization

中国经历了30年高速城镇化过程,规划调整不可避免。我国自2008年起存在规划补偿条款--《城乡规划法》第50条,该条款明确承认因合法规划修改可以提起补偿请求。然而,立法条文形态的规划补偿并没有在行政执法阶段转化为规划补偿实践,在司法阶段也没有真正落实为规划补偿责任。本文通过检视规划补偿请求的利益需求与制度供给间的落差,分析规划补偿条款功能落空的制度症结和功能实现的制度条件,指出规划补偿条款是因应规划合法调整救济需要,由立法者所创设的补偿请求权规范基础,要求市政行政机关在规划调整中依法履行程序审查和公私利益双面考量的规划义务,没有依法履行或者无法证明履行了该规划义务,因规划合法修改给规划相对人或利害关系人造成损害的,构成对私人不动产权利的额外的特别负担,做出特殊牺牲的私人有权提起国家补偿责任诉讼。

China has witnessed a 30-year high-speed urbanization,in which planning adjustments occurred. Since 2008,Article 50 of The Urban and Rural Planning Act in China,a planning compensation clause,has explicitly stipulated that a compensation request can be filed due to legal planning changes. However,the legislative provision of "planning compensation"has not been transformed into planning compensation practice in the administrative enforcement,and it has not been truly implemented as planning compensation responsibility in the planning judicature. By examining the gap between the interest demand and the system supply of the planning compensation request,the institutional crux and the institutional conditions for the realization of the function of the planned compensation clause have been analyzed. The paper points out that the planning compensation clause is created by the legislators in response to the planning adjustment of relief demands,requiring the municipal administrative departments to perform the procedures of reviewing the program and public-private interests in the planning adjustment according to the law. If the planning obligations have not been fulfilled or cannot prove that they have been fulfilled,the individuals have the right to file a state compensation claim for damage caused by planning modifications to plan relatives or interested parties.