强制取得采矿用地的制度选择

System Selection of Compulsory Acquisition of Mining Land

当前农村普遍存在采矿企业合法采矿但违法用地的现象,根源在于现行法律制度既不能解决协商用地不成时的采矿用地取得难题,也不能解决采矿企业和农户的利益冲突。“保障土地和自然资源的合理利用”属于宪法明确规定的“公共利益”,可以为行政机关强制取得采矿用地提供正当性,但也同时要求保障农户获得公平补偿。在采矿许可与用地审批分离的前提下,强制取得采矿用地的可选方案之一是,建立包括补偿裁决在内的强制用地许可制度。但是,如果要将利益冲突消弥于采矿权设立之前,降低采矿企业投资风险,则应通过建立服务于采矿权设立目的的行政协议制度以及协议不成时的土地征用而非征收制度来取得采矿用地;只有在行政机关取得农户土地并给予公平补偿后,才能通过行政许可将采矿权以及采矿用地的使用权一并授予采矿企业。

At present,the phenomenon that mining enterprises“legally mine but illegally use land”is widespread in rural areas.The main reason is that the current legal system can neither solve the problem of obtaining mining land when it is impossible to negotiate the use of land,nor solve the conflict of interests between mining enterprises and farmers.“Ensuring the rational use of land and natural resources”belongs to the“public interest”clearly stipulated in the Constitution,which can provide legitimacy for the administrative organs to forcibly obtain mining land,but at the same time,it requires that farmers should be guaranteed fair compensation.On the premise of separation of mining permit and land use approval,one of the options for compulsory acquisition of mining land is to establish a compulsory land use permit system including compensation award.However,if we want to eliminate the conflict of interest before the establishment of the mining right and reduce the investment risk of the mining enterprise,the mining land should be obtained by establishing an administrative agreement system for serving the purpose of establishing mining right and a land requisition system rather than expropriation system when negotiation fails.Only after the administrative organ obtains the land of farmers and fair compensation is given,can the mining right and the right to use mining land be granted to the mining enterprise through administrative license.