合宪性视角下的成片开发征收及其标准认定

The Constitutionality and Substantive Standards of Land Expropriation for Tract Development

2019年修正的土地管理法建立了公益项目征收和成片开发征收两种土地征收制度。成片开发征收制度虽然饱受争议,其基本制度框架却可以通过现行宪法为征收制度设定的“内容规定性规范”和“边界控制性规范”的检验。要确保成片开发征收的制度内容具备合宪性,相关解释性立法必须将其实体标准严格限定为属于“特别重大的公共利益”需要的建设项目。结合交易成本理论,省级以上的经济开发区建设、特定的城中村改造、以公益性建设为主的综合开发等特定建设项目类型,符合“特别重大的公共利益”标准,可以适用成片开发征收制度。但上述类型中的具体建设项目能否适用成片开发征收,还需通过定量分析、举证、说明理由等途径加以论证。

The Chinese Land Administration Law,which was amended in August 2019,establishes two kinds of land expropriation:land expropriation for specific public interest projects and land expropriation for tract development.Although the system of land expropriation for tract development is highly controversial,its basic institutional framework is able to pass the“content prescriptive norms”test and the“boundary control norms”test established in the Constitution for the land expropriation system.To ensure the constitutionality of the institutional content of appropriation of land for tract development,the relevant interpretative legislations must strictly define the substantive standard as construction project needed for“particularly important public interests”.According to the theory of transaction cost,the system of land expropriation for tract development can be applied to specific types of construction projects,such as“construction of economic development zones approved by a provincial government or the central government”,“rebuilding of specific villages in cities”and“comprehensive development projects focusing on public welfare construction”,which meet the standard of“particularly important public interests”.However,whether land expropriation for tract development can be applied to the above mentioned specific construction projects is still a question that needs to be demonstrated by such means as quantitative analysis,production of evidence and giving reasons.