土地规划之利害关系人权利保障机制研究

【作者】 李想；

【导师】 李昕；

【作者基本信息】 首都师范大学 ， 宪法学与行政法学， 2011， 硕士

【摘要】 土地规划不仅涉及一定区域未来土地资源的用途分配,也触控了依附于被规划土地生产生活的众多利害关系人的合法权益。因而,在土地规划的制定和实施过程中如何保护好与土地规划存在利害关系的主体的合法权益成为重要研究课题。基于土地规划兼具动态性和静态性的双重属性,欲使土地规划中利害关系人的权益得到高效保障,最有效途径就是让利害关系人参与到土地规划实践中,作为土地规划制定和实施的主体之一,及时、充分地捍卫自身的权利。然而,从理论到实践中利害关系人参与土地规划的状况无不令人堪忧：首先是“利害关系人”的概念范畴模糊,致使应受保障的土地规划权利主体无法明确；其次,我国的立法实践中没有一部专门的《中华人民共和国土地规划法》来指导土地规划的制定和实施过程,关于土地规划程序只能参照《中华人民共和国土地管理法》和《中华人民共和国城乡规划法》及下位的法律法规等规范性文件的规定执行,而这些规定中关于公众参与规划的程序仅是停留在权利宣示的层面,没有更为详细、可操作性的规定,利害关系人的土地规划参与权利(具体包括知情权、表达权、听证权)均得不到有效的保障；第三,由于土地规划兼具抽象性与具体性,司法实践仅对依土地规划作出的后续具体行政行为(如行政许可、行政处罚、行政裁决等)提起的诉讼予以受理,而对针对规划内容本身有争议的利害关系人的诉求不予受理,滞后的司法保障使得利害关系人的救济权无法得到及时、高效的实现,这也直接影响了利害关系人参与权的实现。土地规划已不仅仅只是一项行政管理手段,其公共政策的属性日益明显,因而制定和实施过程需要更多注意在维护公共利益的同时关注私人权益的保障,更加关注协调处理好公共管理与私人权利之间的关系,这就在客观上要求土地规划的制定和实施过程中要有利害关系人的参与,对行政权力形成制约,以保证土地规划的权威性与科学性。因此,基于我国目前的法治发展现状,本文意从明确利害关系人的范畴界定、利害关系人在土地规划中享有的权利,参与程序和事后救济的制度设计四个方面入手研究,以求构建起利害关系人在土地规划中的权利保障机制。更多还原

【Abstract】 Land planning will not only involve the land resource’s accommodation of a certain region in the future, but also touch numerous interested parties’legal interest, who have attached in the planned land to producing and living. So when land planning is designed and implemented, how to protect the interested parties’legal interest is an important issue.In the base of dynamic and static features, the most effective and efficient way to protect the interest parties is to allow interest parties to participate in the land planning activities. As one of subject of the land planning’s formulation and implementation, they can protect themselves timely and adequately. However, the situation from theory to practice that interest parties involved in land planning is disquieting. First of all, the concept of "interest parties" is ambiguous, leading to the land planning’subject can not be protected clearly. Secondly, China’s legislative practice has no specific《Land Planning Law》to guide the formulation and implementation of land planning process. Land planning process can only refer to the《Land Management Law》、《Town and Country Planning Law》and other lower laws and regulations. In these rules, the procedure of public participation in the planning process is only staying in the level of declaration, without more detailed operational regulations. The rights of the interest parties (include the right to know、the right to express、the right of hearing and so on) in land planning can not be protected effectively. Finally, because land planning are both abstract and concrete, the judicial practice of land planning has been accepting and hearing the specific administrative act in accordance with land planning barely, like administrative licensing、administrative penalty、administrative adjudication etc. The interest demands that interest parties want to prosecute the land planning content itself is not be accepted. Hysteretic judicial guarantee can not give interest parties relief timely and efficiently, which affects the realization of participation rights.Land planning has been more than just an administrative management tool, the value of its public policy has been become increasingly evident, and thus the land planning process of formulation and implementation needs more attention to coordinate the relationship between public interest and private interest. This requests interest parties’participation during the land planning process objectively in order to ensure land planning’s authority and scientific. Therefore, based on the current status of the rule of law development, this article intends to launch research from the range of interested parties、the right of interested parties、participation procedures and judicial relief in order to build the interest parties’right protection mechanism in land planning process.更多还原