征地补偿安置协议前置及其效力扩张的制度风险与因应解决方案  

The Institutional Risks and Countermeasures in the Prepositive and Force-expanding Compensation Agreement of Land Expropriation

作　　者：靳相木[1] 李梦微 JIN Xiangmu;LI Mengwei

机构地区：[1]浙江大学公共管理学院,杭州310058

出　　处：《农业经济问题》2022年第6期46-56,共11页Issues in Agricultural Economy

基　　金：国家社会科学基金项目“城乡融合情景下集体土地产权治理体系研究”(编号:18BJY124)。

摘　　要：2019年修正的《土地管理法》将征地补偿安置协议前置于征收申请环节,并将其效力扩张到对能否启动征收权予以约束,这一改革旨在充分保障被征收人的各项程序性和实体性的合法权益,但也意外导致土地征收向国家购买的混同和异化,原本公权性质的征收权在正式的法律制度上遂演变成“协议征收”。征收权的公权性质之混同和异化将加大征收实务中“小群体抱团”“钉子户”和地方政府“逼上梁山”等制度风险。因应解决征收权的公权性质之混同和异化所导致的制度风险,应当沿着疏解征收权的非公益性职能的思路,让公益性职能归公权、非公益性职能归市场,推动强化公益性征收的公权性质、建立国家购买集体土地制度和实行集体经营性建设用地入市“三位一体”改革。引入强制缔约制度是在新法确立的补偿安置协议前置框架下强化征收权的公权性质的可能选择,允许国家购买集体土地和集体经营性建设用地入市则是让征收权退出非公共利益领域的两项补位性制度安排。The Chinese Land Administration Law,which was amended in August 2019,puts the land compensation agreement in application process and expands its effectiveness to the extent of determining the implementation of expropriation.This reform is intended to fully protect the legitimate rights and interests of farmers,but it also accidentally leads to alienation and confusion between land expropriation and purchase behavior.Expropriation that was originally a public right has become purchase in practice.The ambiguity of the expropriation’s nature creates cliques,“nail households”and drives local government to harm the public interest,which increase the risk of policies.In order to solve the risk,we should follow the idea of dispersing non-public interest function of expropriation rights.Limit expropriation to public interest area,establish a system for the state to purchase collective land,and promote the marketization of collective construction land.Meanwhile,introducing the compulsory contracting system is a possible choice to strengthen the public rights of the expropriation.The state purchasing system and marketization of collective land are two complementary institutional arrangements that allow expropriation rights to withdraw from non-public interest areas.

关 键 词：土地管理法 征地补偿安置协议 强制缔约 国家购买 集体经营性建设用地入市 

分 类 号：D922.3[政治法律—法学]