成片开发与土地征收

Tract Development and Land Expropriation

新修订的土地管理法未采狭义公共利益的观点,仍将成片开发纳入了征收范围。将成片开发纳入征收有助于公共产品供应与规划落实,化解土地利用的负外部性,也有利于地利共享目标的实现,是我国工业化、城市化的必要基础。基于公共利益本身的发展性,将成片开发纳入征收亦不必然违背公共利益的内涵,反而符合发展中国家的现实国情。但相较土地管理法第45条第1款前四项,成片开发中的公共利益强度较弱,且有被滥用之风险。预防成片开发下的征收风险,既需规划和审批的事前内部控制,又应强化民主参与和司法审查等外部监督,更要围绕公共产品、地利共享的目标制定实体规范,即要求政府在成片开发中提供优质公共产品,为人的市民化提供物质基础,并设置议价购买的前置程序,引入留地安置的补偿方式,改革出让金的收支制度,以为城乡融合、地利共享提供制度保障。

The Land Administration Law,which was revised in 2019,does not take the narrow view of public interest,but incorporates tract development into the scope of land expropriation.Incorporating tract development into land expropriation helps the supply of public goods,resolves the problem of externalities of land use,and facilitates the distribution of land profit and the implementation of city planning.In fact,tract development is the necessary foundation of industrialization and urbanization in China.Moreover,based on the developmental nature of public interest,incorporating tract development into land appropriation does not necessarily go against the connotation of public interest.On the contrary,it is consistent with the national condition in China.Compared with the four previous subparagraphs of the first paragraph of Article 45 of the Land Administrative Law,the subparagraph on tract development does not have a strong public interest nature and has the risk of being abused.To prevent the abuse of land expropriation in tract development,China should not only exercise prior internal control by planning and approval,but also strengthen external supervision through democratic participation and judicial review,as well as formulate substantive regulation around public goods and distribution of land profit.Local governments are required to provide corresponding public goods,set up pre-procedures for bargaining purchases,introduce mechanism for the compensation for reserved-land arrangement,and reform the land use assignment fee system,so as to provide institutional guarantee for urban-rural integration and the distribution of land profit.