经营城市目标下房屋拆迁问题研究.

经营城市目标下房屋拆迁问题研究.摘要：地方政府在经营城市的目标下，大张旗鼓的进行旧房改造，而原土地上的居民被以低廉的成本安置，由此引出了“驱贫引富”的议论。城市化目标，应该是体现人民选择意愿、保障大多数人福祉的“人民城市”，而不是在强行剥夺人民利益后堆砌而成的政绩城市和专为取悦外来投资者而建的招商城市。本文首先从法律角度指出我国土地征收程序的缺陷，然后对我国城市房屋拆迁行为进行了系统的分析和探讨，并在此基础上提出几点看法和建议。    关键词：经营城市 ，房屋拆迁，征收程序    目前，在经营城市理念指引下，计划经济时代的低效率、僵硬的城市管理模式被打破，换之以市场经济的眼光来重新运作城市规划和事务管理，在政绩压力的驱动下，一些冠以“经营城市”美名的征地和拆迁计划纷纷出台，一些代表着城市历史风貌和文化个性的传统街区被一片片推倒，原有土地上的农民和市民被以很低廉的成本安置到别的地方，而大批失地农民和拆迁户的苦涩，是经营城市被片面理解以致强制推行过程中人本理念的缺失，是不少城市在表面繁荣中呈现出的内涵的肤浅和戾气的张扬，这不能不说是城市化进程中的败笔。联想到不久前的湖南嘉禾暴力拆迁事件，其所反映的不仅仅是暴力执法的问题，它揭示的深层次的问题正是我国土地征收制度的缺陷，这不是靠成功率很低的上访和社会关怀所能解决的，只有以法律为工具，对我国土地征收程序来重新定位和思考，才能从源头上理顺关系。    一、我国土地征收程序的缺陷    1. 土地征收程序的立法比较简单、粗糙，在许多具体的制度设计上存在漏洞。具体表现在：（1）土地征收目的合法性审查没有纳入程序中。土地征收目的必须合法，必须是为了公共利益需要才能征收土地，这是国际上通行的原则，亦为我国法律所接受。但这一原则在实施过程中却受到了严重扭曲，表现在：一方面，我国对公共利益的界定不够明确；另一方面，公共利益在程序上没有保障，审批程序中没有征地目的合法性的专项审查，在征地公告中也没有征地目的合法性的专门说明。这样的一个直接后果是无论在实际操作中还是在观念上都淡化了对征收土地目的合法性这一基本前提的重视，导致一些经营性用地也采用征地方式，从而严重侵害了集体土地所有权和土地承包经营权。    （2）缺少对行政机关的监督机制。孟德斯鸠说：“如果司法权同行政权合二为一，法官便握有压迫的力量。”在我国，行政机关既是土地征收的决定者，亦是执行者，处于绝对优势地位， 因此必须对此严加监督，防止权力滥用。但我国现行土地立法并没有规定必要的监督机制，如在征地范围的决定权、征地审查权、赔偿方案确定权等方面都只规定由行政机关自主决定、具体实施，缺少对行政机关的必要监督，导致行政机关既当运动员又当裁判员，容易侵害集体和个人的合法权益，也会带来行政权力的泛滥，破坏政府和人民的关系，危害社会稳定和繁荣。    2. 土地征收程序中对被征收者的保护不足。这主要表现在几方面：    （1）土地征收程序透明度和公示性不够。如在补偿方案的确定上，是由政府自己核准并实施的，实难保障征收程序的公示性，难以避免暗箱操作行为的发生，因而难以保障被征收者    孙寒冰 西北农林科技大学土地管理专业硕士研究生    李世平 西北农林科技大学土地管理专业博士生导师    的利益获得公正的保护。被征收者在土地征收过程中缺乏表达自己意见的机会，整个征地过程中，被征收者都处于比较被动的局面。    （2）行政征用补偿救济手段不完善。此方面不足主要体现在司法救济被排除在救济手段之外。当事人发生争议后，主要通过行政系统内部解决，法院一直不予受理，有很多纠纷经过行政复议程序后，当事人仍对复议结果不服，但状告无门，目前，此状况亟待改变，一是因为法院对此类案件置之不理，不仅不利于保护权利被剥夺或被限制者的权利，也不利于监督行政主体行使权力，从而不符和依法治国的理念；二是因为我国已是WTO成员国，我国必须遵守WTO协议。成员国的立法要设定向司法当局起诉的权利。如果行政机关做出最后裁决后，法院不能再复议，这显然和WTO的规定相矛盾。    二、对我国当前城市房屋拆迁行为分析和探讨    城市拆迁包涵于经营城市的范畴中，而我们最先感知“经营城市”这一概念，是在几年前的中国市长协会第三次代表大会上，当时面对城市日益商业化的挑战，与会的600多位中国市长们开始感觉到，如何经营和管理传统意义上的城市变得甚为紧迫了。然而，“新宠”一落地，很快就成了专家学者们的“众矢之的”。国务院发展研究中心的吴敬琏说：“现行的土地制度促成了地方政府”经营城市“的”宏大抱负“，”卖地生财“成泛滥之势，原因就在有关的制度很不健全。这不仅在经济发展比较落后的地方是这样，经济发展好的地方也如此。土地是老百姓生存之源，有些地方的政府（官员）却随随便便就把地给卖了，这样很危险。”    的确，在城市发展中，尤其是近10年来，各级政府利用城市自身的土地价值，采取土地置换和有偿出让土地使用权等办法，筹集资金用于城市改造，在取得显著成效的同时，也出现了一些偏差。城市发展的总体目标与政府部门具体经营城市公有资源的目标还很难协调一致，公有资源在经济运作过程中也容易滋长腐败，这集中体现在“经营城市”观念如何来定位，在“经营城市”的过程中，政府行为很容易侵害城市公民的私有财产，目前在我国旧城区中有大量的私有房屋，有的已有上百年乃至上千年的历史。这些房屋以及所占有的土地以前都是属于私有的，只是在国家规定土地属于国家和集体之后，私有房屋所占土地的所有权才变成了使用权，但这种使用权既没有约定使用费标准也没有约定使用期限，从现实情况看实际上是无偿且无期限的，正是因为这种使用权的无期限和无偿性，导致房屋的主人在国家出让该房屋所在土地的使用权时没有任何发言权。事实上，国家在出让该土地使用权时根本没有征求现有使用权人的同意。而取得该块土地使用权的房地产开发商则立即拥有了将他人房屋拆除的权利。因为房地产开发商“是以营利为目的，从事房地产开发和经营的企业。”而政府在出让国有土地使用权时又有利益回报，从而使政府在房屋拆迁时总是以法律的名义站在开发商一边，导致被拆迁房屋的所有人的权利受到严重侵犯。     那么，城市房屋拆迁还要不要走下去呢？毫无疑问，城市拆迁行为是有着积极的现实意义的，有些学者引用宪法第13条“国家保护公民的合法收入、储蓄、房屋和其他合法财产的所有权”和宪法第39条“中华1人民共和国公民的住宅不受侵犯，禁止非法搜查或者非法侵入公民的住宅”，对房屋拆迁的合法性提出质疑，有人甚至提到了“违宪”的高度，对房屋拆迁大加置疑。但如果因此对城市拆迁工作叫停那就属于咎枉过正了。首先，就事论事，宪法第13条“国家保护公民的合法收入、储蓄、房屋和其他合法财产的所有权”中关于“房屋”的保护，并不是保护房屋本身，而是保护房屋所有人的房屋所有权。保护房屋与保护房屋所有人的房屋所有权，有质的区别。如果法律保护房屋，这个房屋就不能拆除，包括它的所有人也不能拆除这个房屋。就目前我国的法律而言，只有列为重点文物保护对象的建筑物等极少数房屋，受法律保护不能拆除。而保护房屋所有人的房屋所有权，则根据不同事项有不同的保护方法。房屋所有权的登记发证，是对房屋所有人权利的确认和保护；房屋的租赁、抵押登记和交易变更登记，是对房屋所有人权利变更和房屋所有人变更的确认和保护。而房屋拆迁是通过评估补偿和提供安置措施来保护被拆迁人的房屋所有权，是基于房屋拆迁实际的一种特殊保护形式。至于宪法第39条“中华人民共和国公民的住宅不受侵犯，禁止非法搜查或者非法侵入公民的住宅”，是为防止执法机关、执法人员擅入民宅非法搜查而立，保护的是住宅内的人身安全和财产安全。其次，目前我国的城市化进程正在以前所未有的速度推进，要实现国家工业化、要发展就避免不了新增建设项目，新增建设项目就避免不了房屋拆迁，这个过程在世界上别的国家也是普遍存在的。不能因为个别地方在房屋拆迁中存在违法拆迁、侵害被拆迁人权益的事情而“因噎废食”。建设的根本目的是以人为本，为人服务，为了提高和改善人民的生活水平，这就决定了工厂、学校、医院、商店、住宅等建设项目需要建在有人生活而不是荒无人烟的地方，城市和村镇在建设和改造的过程中也不能只建新房而不拆除旧房，铁路、公路也不能为了避开房屋拆迁而弯来弯去。再次，保护被拆迁人的权益，关键在于房屋拆迁是否依法进行，职能部门是否监管有力，补偿标准是否合法合理，安置措施是否及时落实，建设资金是否按时到位，法律救济是否渠道畅通。只有严格而又有效的监督管理措施，依法而又合理的拆迁补偿安置标准，安全而又到位的拆迁和建设资金，畅通而又公正的法律救济渠道，才能从根本上达到保护被拆迁人合法权益的目的，才能在经济建设和被拆迁人权益保护两个方面取得双赢效果。    三、完善城市房屋拆迁制度的几点建议    一、降低民营企业参与旧城改造的门槛。我国城镇基础设施建设问题太多，财政投入不足使城镇基础设施成为城镇化发展的瓶颈，旧城区基本都是城市的黄金地段，由于拆迁费用高，城市财政无能为力。对民营企业来说，基础设施建设所需投资量大，回收期长，而且投资收益稳定，如果作好项目规划及盈利设计，不失为良好投资方向。各级政府应该积极进行投资体制改革，营造民资进入城镇基础设施及城镇社会事业领域的政策环境和条件，对其投资项目进行项目捆绑，远近兼顾，综合补偿，实现企业赢利，需要的话可以拿相关的一级土地开发或其它项目以及优惠政策做补偿，而民营企业和拆迁户作为平等的民事主体来就补偿标准等进行磋商，政府居中调停，不强行介入。    二、进行模拟拆迁。以往各地拆迁都是先发公告，后做拆迁户的思想工作，最后签订拆迁协议，这种拆迁程序最大的弊端在于所有矛盾纠纷都暴露在拆迁公告之后，政府的“单方”意愿往往不被群众理解和接受。而如果政府和拆迁户就拆迁中各种问题先行磋商，把各种矛盾解决在拆迁之前，等到90%以上的拆迁户都满意了再最后定夺，则就会减少很多阻力。“模拟拆迁”的具体做法是：先确定模拟拆迁区块；充分调动模拟拆迁区块内的骨干力量和居委会干部说服本区块居民，由居民主动联名写申请拆迁报告，拆迁工作人员深入模拟拆迁区块，开展丈量、评估等拆迁前期工作，及时将有关情况向居民进行公告，对出现的矛盾和问题给予解释、说明和解决，尽量将矛盾化解在拆迁之前，由拆迁人与被拆迁人自愿签订拆迁安置意向书，最后拆迁主管部门才正式发出拆迁公告。    三、补偿标准要合理。采取市场化的评估办法，使房屋拆迁补偿评估与市场交易价格接轨，这种“市场保障”的补偿办法源于全国首创的南京拆迁新政策，即市场化评估加上政策保障托底，在地段补偿标准的基础上，委托独立的中介机构根据二手房价格给房屋定价，同时划定最低单价和最低总价两条保障线。最低单价按区位划分，最低保障总价是按照当地最小的经济适用房价格估价，确保困难家庭拆迁后至少能买得起申购的经济适用房。全面推广最低单价补偿和最低总价补偿制度，妥善安置被拆迁户中住房和收入困难的家庭，进一步推进市场化的拆迁评估办法，使房屋拆迁补偿评估与市场交易价格接轨，确保拆迁补偿安置足额到位，坚持“先补偿安置、后实施搬迁”的原则。    四、加强对房屋拆迁的监督管理。首先，加强对拆迁人的监督管理力度，防止违法拆迁、损害被拆迁人合法权益的事情发生。对无房屋拆迁许可证拆迁、超拆迁范围拆迁、超拆迁期限拆迁、自行评估、克扣补偿款和安置面积、拖延补偿款、超期限安置等违法行为，拆迁主管部门应当坚决制止、严肃查处。其次，加强对被拆迁人的监督管理力度，对乘拆迁之机漫天要价、敲竹杠的，也应及时制止，依法维护拆迁人的合法权益。第三，拆迁补偿安置资金要合理监管。补偿安置基金的监管有多种途径，一是由房屋拆迁管理部门与被拆迁人代表共同监管。二是由专业机构如银行等统一保管，其使用由相关部门和拆迁地区的群众代表共同监管，实行专款专用。但不管采取那种方式，拆迁补偿安置资金应当全部用于房屋拆迁的补偿安置，不得挪作他用。    五、实行拆迁服务“动迁与评估相分离”。动迁工作由具有动迁服务资质的拆迁服务单位实施，评估工作由具有价格评估资质的拆迁服务单位从事，各负其责。动迁单位受拆迁人委托从事动迁工作，对拆迁人负责；评估单位居中服务，如实评估，对法律负责，对评估结果承担法律责任。不得由同一家拆迁服务单位同时进行动迁服务和价格评估工作。动迁单位和评估单位应严格按照物价部门规定的标准向拆迁人收取动迁服务费和评估费，要坚决杜绝拆迁费用总包或者拆迁补偿安置承包。拆迁服务单位与被拆迁人分同一块蛋糕，吃亏的只能是被拆迁人。    参考文献：    1、刘文俭：“城市经营概论”，现代城市研究，2001，5    2、张孝德：“中国城市化的陷阱：政府主导下的城市规模扩大化”改革，2001，6    3、周诚君等：“功能导向的经营城市与制度创新”，上海经济研究，2002    4、李寿廷、杨守信：“论土地使用权出让的法律性质”，经济改革1995年第5期    5、洪银兴、陈雯：“城市化模式的新发展”，经济研究，2001，12    6、绕会林：“城市经营浅谈”，城市问题2002，1    7、黄河：房地产法（修订版）中国政法大学出版社，1999版。/Porganization system and working mode, the selection of a number of municipal strengthening group to build innovation and strengthen the organization of the basic level organizations advanced model.(seven) the manual work of the Communist Youth League Organization published and League branch of manual work, to promote the use of two manuals in the citys organizations at various levels. The county committee, directly under the group (work) is under the jurisdiction of grassroots League and group (total) using branch ratio shall not be less than 70%.Three, to further strengthen the groups leadership and team building(a) to strengthen the leagues leadership at all levels of construction. Continue to do a good job of municipal Party Committee Organization Department on the strengthening of the Communist Youth League cadres management opinions implementation. To promote the group counties (autonomous counties, cities) Commission and city directly under the group (workers) appointed to carry out the Five team building activities. Improve the League Association Department working mechanism. Conscientiously fulfill the duties of CO, combined with the city group directly under (the) Committee of the general election and the adjustment, actively jointly with the unit where the party organization department good group leadership selection with the work. Do a good job in municipal Party committee assistant committee leadership and leading cadres of the annual assessment work, adhere to and improve the assistant secretary of the Communist Youth League talk system group To weave individual conversation and collective conversation, to strengthen the committees of all levels, the Standing Committee of the Standing Committee, the establishment of a sound system of central group learning, the system of investigation and study, the system of important issues and the reporting system.(two) to strengthen the work of education and training of cadres to conscientiously implement the Central Committee. On the implementation of grassroots cadres training project and opinions on carrying out the mission municipal CYL Cadres training project implementation opinions, full implementation of the project of the City Youth League cadres training education. Focus on the county grassroots cadres and workers focused on training, the new school system vocational training League cadres, for the Municipal Organization Department jointly held the third session of the Communist Youth League system training cadres in party. Focusing on the construction of new socialist countryside, strengthening village cadres and rural construction team group member of the young team, the county organizations at various levels throughout the year is expected to train 100 00 rural grassroots cadres, plans to train 1000 village secretary of the village Party branch.(three) actively promote grassroots cadres election work. Under the unified leadership of the party organization, to strengthen grassroots organizations direct work, standardize the election work rules and procedures, in the designated candidate, open competition to democratically elected branch secretary at the same time, actively and steadily the development of Township, streets and other grassroots organizations in the direct election of the pilot work, on the basis of summarizing the experience and gradually expand the scope of the pilot, and gradually formed a set of measures and cadres election system.(four) to strengthen the cadres testing exercise. To study the development of XX city from 2006 to 2008 cadres testing exercise planning. To select outstanding cadres to the central mission in Beijing, Shanghai, Guangzhou and other central organs and sending work in developed areas. With the Central Committee the implementation of the western region and ethnic minorities cadres training plan . To carry out the eighth batch of municipal organs attachment cadre management, selection, training work. The outstanding cadres to start the National Development Bank XX branch testing exercise.(five) to strengthen the group construction. The main position to play the role of Youth League cadre education and training as the city, in accordance with the requirements of post training, further curriculum scientifically and rationally, adopt arrangement menu course, basic theory includes group work, focus, hot and difficult issues, to enhance the content and practice; to strengthen the construction of teaching staff, the integration of teachers, establish a quality teacher training team, establish and implement course evaluation system; take delivery of training to the countryside, on-site training, and increase the rural grassroots cadres training efforts.Four, efforts to strengthen the work of young talent(a) to tenth XX young 54 medal in recognition of the publicity, and actively explore the XX youth service. 54 Medal of institutionalization, standardization and socialization mechanism. Give full play to the XX award in recognition of 54 youth medal Association, Youth Award winner in the 54 chapter, investigation activities. Who won the Youth Service medal, dedication to the society to create conditions, build the stage. During the 54, named in recognition of the tenth XX young 54 medal. The association of XX editing of young talent , the exchange of information and communication platform for the XX of outstanding young talents.(two) the establishment of municipal Party committee of young talent information database. In accordance with the feasible, effective, classification management, implement step by step principle, the establishment of municipal Party committee of youth talent database; guiding organizations at various levels generally established the young talent database, construction of city, county (directly under the Communist Youth League), grassroots organizations three young talent information database the relevant information collection system, and gradually establish the citys young people, the Communist Youth League youth talent information network, provide information platform for young talent resource development.Five, take effective measures to strengthen the mission management(a) to strengthen the mission management work. Strengthen the dues collection and management, continue to adhere to the dues collection regularly reporting system, the annual comprehensive award in recognition of the tour and the tour one vote veto system audit system. Do statistical work in the group. The group service award in recognition of the advanced units, standardization, promoting group management work institutionalized.(two) to strengthen the organization of research and information exchange efforts. Grassroots carry out research, efforts to form a number of theoretical results. Make full use of the network carrier, to explore the establishment of electronic group service system, promote the work of Communist Youth League information.Attachment 4:XX municipal Party Committee Propaganda Department of the Communist Youth League work pointsIn 2006, the Communist Youth League propaganda ideological work XX to Deng Xiaoping theory and the important thought of Three Represents as guidance, study and implement the partys sixteen and the spirit of the the fifth Plenary Session of the 16th CPC Central Committee implementation of the eight plenary session of the two committee, the citys cultural work conference, the Propaganda Department of the meeting and the the fourth Plenary Session of the 15th CPC Central Committee permanent mission spirit, closely around 11th Five-Year XX the goal of full implementation of Scientific Outlook on Development, emancipating the mind, seeking truth from facts, keep pace with the times, close to reality, close to life, close to the young, persevere grasp orientation, grasping deepening, grasping construction innovation, further improve the groups propaganda and ideological work ability, unity To guide the majority of members of the youth to achieve the 11th Five-Year planning tasks, the overall construction of a well-off society, building a socialist harmonious society to make new contributions.One, adhere to the Three Represents important thought and Scientific Outlook on Development education to guide the youth, to further strengthen the ideological and political education of youth(a) armed with youth science theory. Unremittingly with Deng Xiaoping theory and the important thought of Three Represents armed members of youth education, to promote the study and implement to expand the depth and breadth. To study and implement the important thought of Three Represents with the establishment and implementation of Scientific Outlook on Development combine with the implementation of the requirements of constructing socialist harmonious society with Scientific Outlook on Development, carry out education as an important part of the theory of armed youth in the new period, strengthen the establishment and implementation of Scientific Outlook on Development education, educate and guide the youth to fully understand the great significance of establishment and implementation of Scientific Outlook on Development, in-depth understanding of the Scientific Outlook on Development era back The king, the practice foundation, basic connotation, historical status, spirit and practice requirements, a profound understanding of Scientific Outlook on Development with Marxism Leninism, Mao Zedong thought, inheriting and developing relationship between Deng Xiaoping theory and the important thought of Three Represents, to help young people establish and consciously practice Scientific Outlook on Development. Persist in learning, grasping the backbone, grasp the practice, grasp the opportunity. Catch club, effective way to grasp the network, with the group of cadres, young students and young backbone fronts as the focus, to promote the work of the armed youth theory to develop in depth, to help the youth continue to firm ideals and beliefs, to build a powerful spiritual pillar. To carry out the study and implementation of the partys sixteen session of the five Eight plenary session of the two plenary session of the Central Committee and the party spirit, to the citys Youth League members thinking into the spirit of the meeting, to achieve the goal of national consciousness and XX economic and social development in 11th Five-Year period. Contribute to help and guide the youth to a profound understanding of the significance and main task of building a socialist harmonious society, actively join the construction of socialist harmonious society.(two) to strengthen the ideological and moral construction of teenagers. Thoroughly implement the central spirit of the document No. 8, No. 16 and the program for Improving Civic Morality to minors and students as focus groups, to strengthen and improve the ideological and moral construction of minors and the ideological and political education of college students. Make full use of the spirit and the spirit of the Three Gorges migrants Hongyan XX unique the use of educational resources, school, into the team, the league, to join the party, adult occasions, extensive Hongyan spirit generation theme education activities. Use of holidays and leisure time, youth organizations three rural areas, four communities, four and moral practice, guide the youth Youth to enhance national pride, self-esteem and self-confidence, to establish the trend of the times and adapt to the trend of thinking, value orientation and behavior.(three) innovative ways and means of ideological education. Grasp the new trend of the development of the times, the new hot new features and social ideological status of young people, to further explore the methods of ideological education using modern technology and communication mode of education make lively and vivid, fully embodies the close to reality, close to life, close to the young principle through the cultivation and selection. Hongyan demonstration group, good boy, Hongyan Hongyan Youth and other forms of more scientific use of advanced typical influence and promote youth, and strive to create advocating advanced, learning advanced, striving to advance a good atmosphere.Two, in order to forge ahead with the motherland, and XX with the development as its theme, guide the youth to build a common ideological basis for the construction of a socialist harmonious society(a) grasp the theme of the purpose of the activity. The go ahead with the motherland in the youth, and XX with the development of theme educational activities. Vigorously promote patriotism as the core of the national spirit and reform and innovation as the core spirit of the times, the combination of youth with common ideals and beliefs, with great achievements in socialist modernization the motivation of youth, the youth to enhance self-confidence, sense of mission and responsibility to educate and guide the youth to personal pursuit into the common pursuit of all people, their personal struggle into the great practice of building socialism China characteristics, further firmly follow the party China characteristics The confidence and determination of the socialist road, and build the common ideological foundation of the young people to build a socialist harmonious society.(two) rich theme activities. By carrying out the two generation dialogue , in my eyes, the charm of XX situation and policy through activities such as lectures, report, seminars, theatrical performances, mass cultural activities, to help young people understand Chinas reform and opening up the extraordinary journey and brilliant achievements achieved fruitful results, to understand the citys economic and social development since the new XX, so that young people understand, love the new XX, and