公益性国有土地使用权收回的法律性质与补偿模式

The Legal Nature and Compensation Model of Reclaiming the Right to Use State-Owned Land for the Sake of Public Interests

不同法律依据下的国有土地使用权收回性质并不相同:有的属于行政处罚,有的属于行政处理,有的属于私法性收回,有的属于征收性质。因立法或者行政命令调整土地利用规划,而需要提前收回国有土地使用权的,构成国有土地使用权人因公共利益的特别负担,性质上即属于征收;且无论行政主体是否在客观上做出收回土地使用权的决定,均负担对权利人的补偿义务。此种征收与传统意义上对国有土地上房屋所有权的征收有所区别,而更符合管制性征收概念。确定补偿时,国有土地上建设有房屋等建筑物的,应当对国有土地上房屋实施征收和补偿后,依法收回并办理国有土地使用权注销手续。征收(收回)时无地上建筑物的,宜综合考虑土地取得方式和取得时的价值确定方式、收回的原因、是否存在“以地易地”补偿的可能、土地性质、同类型土地价值变化等,实施公正补偿。

The nature of recovering the state-owned land use right under different legal basis is not the same:some belong to administrative punishment,some belong to administrative treatment,some belong to private law recovery,and some are expropriation in nature.If it is necessary to recover the state-owned land use right in advance due to the adjustment of land-use planning by legislation or administrative order,it is expropriation in nature because it constitutes a special burden on the state-owned land use right holder due to the public interest,and the administrative subject shall bear the compensation obligation to the right holder whether or not it makes an objective decision to recover the land-use right.This kind of expropriation is different from the traditional expropriation of the ownership of houses on state-owned land,and more in line with the concept of regulatory taking.When determining compensation,if houses and other buildings are built on the state-owned land,they shall be expropriated and compensated,then the state-owned land use right shall be taken back according to law and the procedures for right cancellation should be completed.If there are no buildings on the ground at the time of expropriation(recovery),it is advisable to comprehensively consider the way of land acquisition and the way of value determination at the time of acquisition,the reason for recovery,the possibility of“land for land”compensation,the nature of land,the change of value of the same type of land,etc.,so as to implement fair compensation.