论突发事件应对中的先行用地

On Advance Land Use in Emergency Response

从历史维度考察,出于耕地保护的需要,我国建构了严格的农用地转用和土地征收审批程序,而突发事件应对中的先行用地则是行政应急原则在土地治理领域的自然延伸,这种常态化的用地审批与应急管理下的突破共同演绎了用地审批制度的变革逻辑。国家自卫权、宪法的行政组织效能与紧急状态条款、行政效能原则的程序表达共同构成了先行用地的理论和规范支点。在我国现有法律体系规范中,这种先行用地实质上包括土地征用和征用转征收两种情形。在制度建构中,应对先行用地的适用类型进行开放性控制,容忍一定程度的“行政异化”,达至与永久基本农田制度和建设用地指标控制的制度衔接,同时在用地审批规范内部通过对申请和批准主体、补偿等问题的规范寻求自我平衡。

From a historical perspective,for the need of arable land protection,China has established strict approval procedures for the conversion of agricultural land and land expropriation,and the advance land use in emergency response is a natural extension of the principle of administrative emergency in the field of land governance.This kind of normalized land use approval and breakthroughs under emergency management jointly interpret the transformation logic of the land use approval system.The power of national selfdefense,the emergency response administrative organization efficiency and emergency clause of the constitution,the procedural expression of the principle of administrative efficiency together constitute the theoretical and normative fulcrum of the advance land use.In the existing legal system in China,such advance land use essentially includes two situations:land requisition and land expropriation transformed from land requisition.In the system construction,the type of advance land use should be controlled with exception,and tolerate a certain degree of“administrative alienation”in order to connect the advance land use system with permanent basic farmland system and construction land index control,and at the same time specify the issues of approve subjects,compensation,etc.