我国城市房屋拆迁程序相关问题研究
摘要
从我国城市房屋拆迁的发展历程中,可以看出城市房屋拆迁是城市社会经济发展到一定阶段的必然产物,是城市建设的必然要求。当前,随着我国城市建设进入快速阶段,各城市房屋拆迁量和拆迁规模都呈不断上升的趋势,而房屋拆迁引起的矛盾纠纷亦逐渐成为最突出的社会问题,严重影响了城市建设进程和社会稳定。如何化解城市房屋拆迁中的矛盾纠纷成为亟待解决的问题。城市房屋拆迁矛盾纠纷产生的根本原因是利益的争夺,表现为宏观上的拆迁效率和拆迁正义之间的冲突及微观上的拆迁补偿问题。城市房屋拆迁程序失范是激化拆迁矛盾的重要原因。实体正义需要程序正义来保障,拆迁当事人的实体权利必须通过正当公平的程序予以保障,完善我国城市房屋拆迁程序是化解拆迁矛盾的重要途径。
该论文通过理论结合实际,对我国目前城市房屋拆迁程序进行了深入分析研究,指出了目前我国城市房屋拆迁程序存在的问题及导致的事实上的行政权力“膨胀”、被拆迁人权利几近灭失、形成了严重不对等的拆迁关系、拆迁利益严重失衡、拆迁公平正义无法实现等不良后果,对造成这些后果的原因进行了系统分析,在此基础上,着重从建设与完善我国城市房屋征收制度的角度提出了完善我国城市房屋拆迁程序的相关措施与建议:1)商业性拆迁和公益性拆迁应该使用不同的程序,前者应符合一般建设管理程序,后者应严格遵循城市房屋征收与拆迁程序。2)商业性拆迁应退出强制拆迁管理的范畴,即商业性拆迁不应该通过征收私人房屋程序实现,商业性质的城市房屋拆迁程序中除了必须办理建设审批、备案等一般建设程序外,应该是以多样化、非固定化的程序为突出特点,充分发挥市场的潜在作用。3)公益性质的城市房屋拆迁实质上是城市房屋征收与拆迁,房屋征收是整个程序的核心和关键,应以城市房屋征收程序为重点来完善公益性城市房屋拆迁程序。4)以当前城市房屋拆迁的各个具体程序为基础,结合实践中显现的具体问题,完善我国城市房屋征收程序:应严格启用城市房屋征收程序,征收补偿应以充分协商为前提,扩大司法变更权限、改革司法体制以保证司法有效救济。
We can see that from the demolition of urban housing development process, house demolition is a necessary requirement of urban construction in urban economic and social development to a certain stage in the product. At present, with fast access to China's urban construction stage, the amount of urban housing demolition and relocation rising trend in the scale were tested, and house demolition caused by the disputes have gradually become the most prominent social problems, even a serious impact on the process of urban construction and social stable. Countries have also paid much attention, continuously improved the relevant legal, because the nature of urban house demolition is not allowed to attribute positioning, relocation rights and obligations between the parties to identify clear, so it still can not completely solve the demolition of the difficult problem. The root of conflicts and disputes is from the struggle of interests in urban housing demolition, which is in the macro, conflicts between efficiency and justice as well as compensation for demolition of standards in micro. Anomie demolition process is an important reason for intensifying contradictions in demolition. Procedural and substantive justice require protection, substantive rights of the demolition must through just and fair procedures system to protect, and it is an important way to resolve conflicts demolition of improving the implementation of programs in cities of China.
This paper, through theory with reality, makes a deep analysis on China's current urban housing demolition program, and shows that the current problems in the procedure of house demolition and lead to expansion of administrative power, the demolishee almost lost the rights, and to form a serious, non-equivalence relationship and removal a serious imbalance of interest, it can not achieve fairness and justice as negative consequences. In this paper, the causes of these consequences are given by a systematic analysis and emphasis from the construction and improvement of urban housing expropriation system, and propose the improvement of house demolition procedures related measures and proposals : 1) commercial and public benefit demolition should be used in different public welfare programs, the former should be consistent with the general construction management process, and latter should strictly follow the collection and removal procedures for urban housing. 2) the commercial demolition should be evicted out of the scope of management by force, that is the commercial demolition should not be achieved through the collection of private housing program, urban housing in commercial demolition process must be handled in addition to planning, building approval, the record transfer of property rights are being loaded ,it should be the diversification, non-fixed features of the program as the highlight and give full play the potential role in the market. 3) The public nature of the urban house demolition is virtually the city housing levy and demolition, housing levy is the core and the key of the whole process, and it should focus on housing levy procedures to improve the public welfare urban housing demolition program. It based on the various specific program in current urban housing demolition, and combined with the specific problems in practice, to improve the collection process of house: using the city housing process strictly, the collection of compensation should be based on the premise of full consultation, to expand authority of judicial change, reforming judicial system and to ensure effective judicial relief.
该论文通过理论结合实际,对我国目前城市房屋拆迁程序进行了深入分析研究,指出了目前我国城市房屋拆迁程序存在的问题及导致的事实上的行政权力“膨胀”、被拆迁人权利几近灭失、形成了严重不对等的拆迁关系、拆迁利益严重失衡、拆迁公平正义无法实现等不良后果,对造成这些后果的原因进行了系统分析,在此基础上,着重从建设与完善我国城市房屋征收制度的角度提出了完善我国城市房屋拆迁程序的相关措施与建议:1)商业性拆迁和公益性拆迁应该使用不同的程序,前者应符合一般建设管理程序,后者应严格遵循城市房屋征收与拆迁程序。2)商业性拆迁应退出强制拆迁管理的范畴,即商业性拆迁不应该通过征收私人房屋程序实现,商业性质的城市房屋拆迁程序中除了必须办理建设审批、备案等一般建设程序外,应该是以多样化、非固定化的程序为突出特点,充分发挥市场的潜在作用。3)公益性质的城市房屋拆迁实质上是城市房屋征收与拆迁,房屋征收是整个程序的核心和关键,应以城市房屋征收程序为重点来完善公益性城市房屋拆迁程序。4)以当前城市房屋拆迁的各个具体程序为基础,结合实践中显现的具体问题,完善我国城市房屋征收程序:应严格启用城市房屋征收程序,征收补偿应以充分协商为前提,扩大司法变更权限、改革司法体制以保证司法有效救济。
We can see that from the demolition of urban housing development process, house demolition is a necessary requirement of urban construction in urban economic and social development to a certain stage in the product. At present, with fast access to China's urban construction stage, the amount of urban housing demolition and relocation rising trend in the scale were tested, and house demolition caused by the disputes have gradually become the most prominent social problems, even a serious impact on the process of urban construction and social stable. Countries have also paid much attention, continuously improved the relevant legal, because the nature of urban house demolition is not allowed to attribute positioning, relocation rights and obligations between the parties to identify clear, so it still can not completely solve the demolition of the difficult problem. The root of conflicts and disputes is from the struggle of interests in urban housing demolition, which is in the macro, conflicts between efficiency and justice as well as compensation for demolition of standards in micro. Anomie demolition process is an important reason for intensifying contradictions in demolition. Procedural and substantive justice require protection, substantive rights of the demolition must through just and fair procedures system to protect, and it is an important way to resolve conflicts demolition of improving the implementation of programs in cities of China.
This paper, through theory with reality, makes a deep analysis on China's current urban housing demolition program, and shows that the current problems in the procedure of house demolition and lead to expansion of administrative power, the demolishee almost lost the rights, and to form a serious, non-equivalence relationship and removal a serious imbalance of interest, it can not achieve fairness and justice as negative consequences. In this paper, the causes of these consequences are given by a systematic analysis and emphasis from the construction and improvement of urban housing expropriation system, and propose the improvement of house demolition procedures related measures and proposals : 1) commercial and public benefit demolition should be used in different public welfare programs, the former should be consistent with the general construction management process, and latter should strictly follow the collection and removal procedures for urban housing. 2) the commercial demolition should be evicted out of the scope of management by force, that is the commercial demolition should not be achieved through the collection of private housing program, urban housing in commercial demolition process must be handled in addition to planning, building approval, the record transfer of property rights are being loaded ,it should be the diversification, non-fixed features of the program as the highlight and give full play the potential role in the market. 3) The public nature of the urban house demolition is virtually the city housing levy and demolition, housing levy is the core and the key of the whole process, and it should focus on housing levy procedures to improve the public welfare urban housing demolition program. It based on the various specific program in current urban housing demolition, and combined with the specific problems in practice, to improve the collection process of house: using the city housing process strictly, the collection of compensation should be based on the premise of full consultation, to expand authority of judicial change, reforming judicial system and to ensure effective judicial relief.
引文
[1] Raco Mike. Business associations and the politics of urban renewal: The case of the Lower Don Valley. Sheffield.Urban stud. 1997.34(3): 383-402.
[2] Jodi Wilgoren. Detroit Urban Renewal Without the Renewal. New York Times (Late Edition(East Coast)). New York. N.Y.: Jul 7.2002.pg.1.10.
[3] Lewis Mumford.The City in Hostory its Orogins. its Transformation.and its Prospects.Harcourt. Brace & World. New York.1961.pp571.
[4] J.Jacobs.The Death and Life of Great American Citis.Random house.1961.pp143.
[5] E.RSchumacher. Small is B eautiful:Economics as if People mattered. New York: Harper&Row. 1973. p66.
[6] Naomi Carmon. Three generations of urban renewal policies analysis and policy implications[J]. Geoforum. 30. 1999.pp.145-158.
[7] Bettina Reimann. Consequences of the restitution principle for urban development and urban. renewal in E ast B erlin's inner-city residential areas [J]. A pplied G eography. Vol. 17. N o.4. 1997. pp.301-314.
[8] O" zlem Dundar. Models of Urban Transformation Informal Housing in Ankara [J]. Cities.Vol.18. No. 6. 2001. pp. 391-401.
[9] Seong-Kyu Ha. Substandard settlements and joint redevelopment projects in Seoul [J]. Habitat Intemationa1. 25. 2001. pp. 385-397.
[10] Zhiyong Wang. Zuliang Yuan. Forced demolitions blur rights China Daily.(North American ed.). New York. N.Y: Apr 21. 2004.pg.5.
[11] David Adamsa. E.M. Hastings. Urban Renewal in Hong Kong Transition from Development Corporation to Renewal Authority [J]. Land Use Policy.l8. 2001. pp. 245-258.
[12] Erik Eckholm. Sadly. There Goes the Neighborhood. There's No Stopping "Urban Renewal". New York Times. (Late Edition (East Coast)). New York. N.Y.: May 26. 2003. pg. A.4.
[13] Andre Thomsen. Marie-Therese Andeweg-Van Battum. Sustainable Housing Trarlsfornlation.
[14]户邑.中国城市房屋拆迁的制度性障碍分析[J].理论前沿,2005,(04):32-34.
[15]季永蔚.论我国城市房屋拆迁制度的完善[J].城市发展研究,2005,(02):75-82.
[16]周军虎.我国现行城市房屋拆迁补偿制度的缺陷与对策[J].长江大学学报,2009:45-47.
[17]刘浩,刘琪.城市拆迁现状与补偿问题初探[J].中国新技术新产品, 2009,(01):72.
[18]赵阳.物权法视野下房屋拆迁制度的重构[J].行政法学研究,2008,(01):61-77.
[19]杨峰.房屋拆迁与社会公共利益[J].中南大学学报(社会科学版), 2005,(05);611-615.
[20]安明贤.城市房屋拆迁制度中公共利益的合理界定[J].山西省政法管理干部学院学报, 2006, (04):75-77.
[21]张音宇.我国城市房屋拆迁中的公共利益问题研究[J].无锡商业职业技术学院学报, 2008, (01):41-43.
[22]李钟书,翁里.论城市拆迁中社会利益和经济利益的博弈[J].安徽大学学报(哲学社会科学版), 2004,(04):95-100.
[23]聂琦波.城市建设拆迁中的利益冲突根源及其调整机理研究[J].现代经济探讨,2004,(10):3-5.
[24]户邑.城市拆迁管理过程中利益共同体的合谋行为研究[J].长春大学学报,2005,(03):71-75.
[25]常莹,聂琦波.城市拆迁过程中弱势群体的利益维护分析[J].商场现代化, 2006,(08):294-295.
[26]赵坚.浅论征地房屋拆迁中被拆迁人利益的保护[J].法制与经济(下半月), 2008,(06):60-61.
[27]姜方利.强制拆迁中公权与私权的冲突与和谐[J].广州市经济管理干部学院学报,2004,(04):32-35.
[28]梁胜.城市拆迁公权私权大博弈[J].发展研究,2004,(09):39-40.
[29]刘任平.城市房屋强制拆迁中公权与私权的冲突与和谐[J].湖南公安高等专科学校学报, 2005, (01):101-104.
[30]张改清,白洪涛.中国语境下公权与私权的博弈—兼论我国征地与拆迁制度的完善[J].河北法学, 2006, (04):15-18.
[31]才让塔.论我国城市房屋拆迁中的正当程序[J].青海师专学报, 2005,(S3):31-32.
[32]万英华.试论城市房屋拆迁行政强制执行程序[J].商场现代化,2009(19):145.
[33]万振东.城市房屋拆迁的困境原因和对策[D].山东大学,2009.
[34]张群.住房制度改革30年:从法律史角度的考察住[J].法商研究,2009,(01):70-76.
[35]城市房屋拆迁管理条例(案例应用版)[M].中国法制出版社,2009年8月,第一版.
[36]许燕.论城市房屋拆迁的行政法规制[J].法学论坛,2004,(05):42-47.
[37]徐元.城市房屋拆迁性质分析[J].城乡建设,2006,(05):51-53.
[38]王才亮.拆迁管理与纠纷处理操作指南[M],中国建筑工业出版社,2005:1-5.
[39]汉斯.J.沃尔夫等.行政法[M],高家伟译,商务印书馆,2002:323.
[40]魏新现.我国城市房屋拆迁程序研究[D],西南政法大学,2008年4月.
[41]法国《人权宣言》第17条:所有权是神圣不可侵犯的人权,除非为了公共利益的要求,以及事先给予公正的补偿,不得予以剥夺.
[42]美国宪法修正案第5条.
[43]德国基本法第14条第3项.
[44] Kessler City of Indianapolis,157,549(Ind 1927).
[45]骆小春.析拆迁许可的非正当性[J].法学杂志, 2004,(05):48-50.
[46]程洁.土地征收征用中的程序失范与重构[J].法学研究, 2006(1):62-78.
[47]邹效顺.城市房屋拆迁强制执行问题研究[D].苏州大学,2006:35.
[48]北大教授谈商业拆迁,《青年周末,http://www.sina.com.cn 2009-12-17.
[49]房屋拆迁新法将不涉及商业拆迁,南方网,http://www.nmajw.com2010-02-22.
[50]李家才.拆迁分流:从源头上约束城市房屋拆迁[J].改革, 2005(01): 111-113.
[51]景志刚.土地征收之公共利益研究[D], 2007:40.
[52]谭九生.土地征用公益目的性探讨[J].河北法学,2007,(07):53-57.
[53]彭小霞.城市拆迁中强制拆迁制度的反思与重构[J].城市发展研究,2009(5):113-118.
[54]张丽娥.作为城市房屋拆迁理由的公共利益解释[D].厦门大学, 2008.
[55]卢新海,黄善林.拆迁评估中存在的问题及解决途径[J].城市问题,2007, (01):87-91.
[56]王义德.房屋拆迁纠纷的行政裁决机制研究[D].西南政法大学, 2009.
[2] Jodi Wilgoren. Detroit Urban Renewal Without the Renewal. New York Times (Late Edition(East Coast)). New York. N.Y.: Jul 7.2002.pg.1.10.
[3] Lewis Mumford.The City in Hostory its Orogins. its Transformation.and its Prospects.Harcourt. Brace & World. New York.1961.pp571.
[4] J.Jacobs.The Death and Life of Great American Citis.Random house.1961.pp143.
[5] E.RSchumacher. Small is B eautiful:Economics as if People mattered. New York: Harper&Row. 1973. p66.
[6] Naomi Carmon. Three generations of urban renewal policies analysis and policy implications[J]. Geoforum. 30. 1999.pp.145-158.
[7] Bettina Reimann. Consequences of the restitution principle for urban development and urban. renewal in E ast B erlin's inner-city residential areas [J]. A pplied G eography. Vol. 17. N o.4. 1997. pp.301-314.
[8] O" zlem Dundar. Models of Urban Transformation Informal Housing in Ankara [J]. Cities.Vol.18. No. 6. 2001. pp. 391-401.
[9] Seong-Kyu Ha. Substandard settlements and joint redevelopment projects in Seoul [J]. Habitat Intemationa1. 25. 2001. pp. 385-397.
[10] Zhiyong Wang. Zuliang Yuan. Forced demolitions blur rights China Daily.(North American ed.). New York. N.Y: Apr 21. 2004.pg.5.
[11] David Adamsa. E.M. Hastings. Urban Renewal in Hong Kong Transition from Development Corporation to Renewal Authority [J]. Land Use Policy.l8. 2001. pp. 245-258.
[12] Erik Eckholm. Sadly. There Goes the Neighborhood. There's No Stopping "Urban Renewal". New York Times. (Late Edition (East Coast)). New York. N.Y.: May 26. 2003. pg. A.4.
[13] Andre Thomsen. Marie-Therese Andeweg-Van Battum. Sustainable Housing Trarlsfornlation.
[14]户邑.中国城市房屋拆迁的制度性障碍分析[J].理论前沿,2005,(04):32-34.
[15]季永蔚.论我国城市房屋拆迁制度的完善[J].城市发展研究,2005,(02):75-82.
[16]周军虎.我国现行城市房屋拆迁补偿制度的缺陷与对策[J].长江大学学报,2009:45-47.
[17]刘浩,刘琪.城市拆迁现状与补偿问题初探[J].中国新技术新产品, 2009,(01):72.
[18]赵阳.物权法视野下房屋拆迁制度的重构[J].行政法学研究,2008,(01):61-77.
[19]杨峰.房屋拆迁与社会公共利益[J].中南大学学报(社会科学版), 2005,(05);611-615.
[20]安明贤.城市房屋拆迁制度中公共利益的合理界定[J].山西省政法管理干部学院学报, 2006, (04):75-77.
[21]张音宇.我国城市房屋拆迁中的公共利益问题研究[J].无锡商业职业技术学院学报, 2008, (01):41-43.
[22]李钟书,翁里.论城市拆迁中社会利益和经济利益的博弈[J].安徽大学学报(哲学社会科学版), 2004,(04):95-100.
[23]聂琦波.城市建设拆迁中的利益冲突根源及其调整机理研究[J].现代经济探讨,2004,(10):3-5.
[24]户邑.城市拆迁管理过程中利益共同体的合谋行为研究[J].长春大学学报,2005,(03):71-75.
[25]常莹,聂琦波.城市拆迁过程中弱势群体的利益维护分析[J].商场现代化, 2006,(08):294-295.
[26]赵坚.浅论征地房屋拆迁中被拆迁人利益的保护[J].法制与经济(下半月), 2008,(06):60-61.
[27]姜方利.强制拆迁中公权与私权的冲突与和谐[J].广州市经济管理干部学院学报,2004,(04):32-35.
[28]梁胜.城市拆迁公权私权大博弈[J].发展研究,2004,(09):39-40.
[29]刘任平.城市房屋强制拆迁中公权与私权的冲突与和谐[J].湖南公安高等专科学校学报, 2005, (01):101-104.
[30]张改清,白洪涛.中国语境下公权与私权的博弈—兼论我国征地与拆迁制度的完善[J].河北法学, 2006, (04):15-18.
[31]才让塔.论我国城市房屋拆迁中的正当程序[J].青海师专学报, 2005,(S3):31-32.
[32]万英华.试论城市房屋拆迁行政强制执行程序[J].商场现代化,2009(19):145.
[33]万振东.城市房屋拆迁的困境原因和对策[D].山东大学,2009.
[34]张群.住房制度改革30年:从法律史角度的考察住[J].法商研究,2009,(01):70-76.
[35]城市房屋拆迁管理条例(案例应用版)[M].中国法制出版社,2009年8月,第一版.
[36]许燕.论城市房屋拆迁的行政法规制[J].法学论坛,2004,(05):42-47.
[37]徐元.城市房屋拆迁性质分析[J].城乡建设,2006,(05):51-53.
[38]王才亮.拆迁管理与纠纷处理操作指南[M],中国建筑工业出版社,2005:1-5.
[39]汉斯.J.沃尔夫等.行政法[M],高家伟译,商务印书馆,2002:323.
[40]魏新现.我国城市房屋拆迁程序研究[D],西南政法大学,2008年4月.
[41]法国《人权宣言》第17条:所有权是神圣不可侵犯的人权,除非为了公共利益的要求,以及事先给予公正的补偿,不得予以剥夺.
[42]美国宪法修正案第5条.
[43]德国基本法第14条第3项.
[44] Kessler City of Indianapolis,157,549(Ind 1927).
[45]骆小春.析拆迁许可的非正当性[J].法学杂志, 2004,(05):48-50.
[46]程洁.土地征收征用中的程序失范与重构[J].法学研究, 2006(1):62-78.
[47]邹效顺.城市房屋拆迁强制执行问题研究[D].苏州大学,2006:35.
[48]北大教授谈商业拆迁,《青年周末,http://www.sina.com.cn 2009-12-17.
[49]房屋拆迁新法将不涉及商业拆迁,南方网,http://www.nmajw.com2010-02-22.
[50]李家才.拆迁分流:从源头上约束城市房屋拆迁[J].改革, 2005(01): 111-113.
[51]景志刚.土地征收之公共利益研究[D], 2007:40.
[52]谭九生.土地征用公益目的性探讨[J].河北法学,2007,(07):53-57.
[53]彭小霞.城市拆迁中强制拆迁制度的反思与重构[J].城市发展研究,2009(5):113-118.
[54]张丽娥.作为城市房屋拆迁理由的公共利益解释[D].厦门大学, 2008.
[55]卢新海,黄善林.拆迁评估中存在的问题及解决途径[J].城市问题,2007, (01):87-91.
[56]王义德.房屋拆迁纠纷的行政裁决机制研究[D].西南政法大学, 2009.