房屋征收补偿协议纠纷的司法救济研究

发布时间：2018-01-05 01:05

本文关键词：房屋征收补偿协议纠纷的司法救济研究　出处：《华东政法大学》2015年硕士论文　论文类型：学位论文

【摘要】：《国有土地上房屋征收与补偿条例》第二十五条对征收补偿协议的性质以及不履行征收补偿协议引发纠纷时采取何种诉讼方式予以救济不置可否,“可以依法提起诉讼”的模糊表述引起了理论界和实务界行政合同和民事合同的定性之争。立法的不明确极易导致法院受理此类案件和民众维护自身权益时的无所适从。明确征收补偿协议的法律性质并确定其纠纷解决的司法救济途径显得迫切而重要。从征收补偿协议的内在逻辑进行分析,房屋征收补偿协议是双方当事人合意的产物,在城市建设等公共利益的基础上,由房屋征收部门与被征收房屋的所有权人或公房承租人对征收补偿具体事宜协商一致的前提下所达成的协议。通过行政合同与民事合同的识别标准,可知,征收补偿协议符合行政合同的内在结构。具体地说,第一,主体要素中房屋征收补偿协议的当事人一方恒为行政主体,即区、县人民政府确定的房屋征收部门,且在订立协议的过程中其以行政管理者的角色出现。第二,从内容要素看房屋征收补偿协议的签订过程贯穿公权力的运用,主要有三方面体现:一来征收补偿协议的基础行为是基于公共利益需要作出的房屋征收决定,是该决定的后续性行为,签订协议只是实现征收决定的方式之一。二来征收补偿协议签订的具体内容围绕市、县级人民政府所作的征收决定和补偿方案展开。双方当事人的意思自治空间有限。其三,经过自由、平等的协商后,如若达不成协议,则由房屋征收部门报请作出房屋征收决定的市、县级人民政府作出补偿决定。可见,征收补偿协议的内容凸显了浓重的行政性色彩。第三,目的要素上,房屋征收补偿协议基于公共利益而订立,是为了保障国家安全、促进国民经济和社会发展等需要,为了稳定、迅速地推进征收补偿程序,促使行政主体完成行政管理目标。综上,本文所探讨的征收补偿协议内在逻辑上属于行政合同。从价值蕴含的维度看,征收补偿协议为行政合同的定位不仅使协议本身得到理性回归,明晰了司法救济路径的逻辑起点;更使行政合同相关理论在房屋征收领域得到有效契合,推进了行政合同理论在行政活动中的拓展;现实层面上也更有利于保护行政相对人的合法权益。辨明了司法救济的逻辑起点——协议性质后,审视现有司法救济的立法现状和实践运行是完善司法救济路径的现实基础。通过各个效力层次法律文本的检视,我国的立法主要存有以下缺陷:其一,立法措辞存在模糊性,条例对“诉讼”的性质态度不明朗;其二,低位阶的规范违背上位法的规定,存在不相容性。从征收补偿协议实践运行的角度看,此类案件呈现出涉及的补偿金额大、不同的利益主体间矛盾较为突出、案件具有“裙带效应”等基本特点。各地法院在处理此类纠纷时错乱不一,有的由行政审判庭纳入行政诉讼进行审查,而更多的是以民事诉讼的程序进行审理。遵循行政诉讼的救济方式,现实运作上遭遇两方面尴尬:一方面无法突破单方救济的诉讼理念,行政主体的诉权无法实现;另一方面具体审理此类纠纷时,行政诉讼的举证责任分配、法律适用等微观的法律规则无法应对双向性审查的挑战。然而,若无视征收补偿协议行政性的本质属性而屈从于民事诉讼的途径进行救济,也有不亲和性。宏观层面而言,民事诉讼双方的诉讼地位平等,不利于监督行政主体权力的行使,更难以保障被征收人的权益。微观层面上讲,民事诉讼具体的审理规则无法审查行政合同合法性的内容。不同的审判模式在诉讼程序、法律适用、审理规则等方面有着迥然的差异,必然会导致审判依据的不同进而可能影响审判结果的公平正义。“无救济则无权利”,以征收补偿协议的法律性质为逻辑起点,以完善司法救济的现有不足为目标,构建征收补偿协议履行纠纷的诉讼程序和司法审查规则是权利得以实现的保护伞。房屋征收补偿协议中的当事人最终形成的是行政法上的权利义务关系,行政法律关系理应适用行政法律规范予以调整,履行协议产生的纠纷也应遵循公法救济路径。随着《行政诉讼法》将房屋征收补偿协议、政府特许经营协议等协议产生的纠纷明确纳入受案范围以及判决方式上增加了协议履行及补偿判决等类型后,被征收人在房屋征收部门违约时提起行政诉讼寻得了立法支持。从房屋征收部门一方而言,也有要求法院裁决纠纷的现实需要,而且赋予行政主体一方提起行政诉讼的权利的同时对其诉权行使进行必要的限制可以规制可能产生的失范行为。当然,将征收补偿协议纳入行政诉讼的渠道进行救济的同时,需要在具体制度的设计上作出技术性的改变。完善征收补偿协议司法救济的具体内容包括以下内容:第一,立法模式。构建的具体内容和程序设计需要借助一定的立法形式予以呈现,目前司法解释的形式是最优的方案。第二,构建双向性审查结构的具体内容。诉讼程序上合理借鉴民事诉讼:(1)房屋征收部门应具有行政诉讼的原告资格;(2)举证责任上,房屋征收部门应当对其征收权限、行为的合法性承担举证责任,其他协议方面的内容则遵循“谁主张,谁举证”的民事诉讼举证责任分配原则。征收补偿协议纠纷的实体审理上混合适用公私法规则,即法院不仅要适用行政法上的原则、规则,还要结合适用《合同法》上的具体规定。具体进行如下完善:(1)法律适用上,公私法混合适用。法院不仅需要适用《合同法》的具体规定,更要遵循行政法上的原则和规则,包括合法合理性审查原则以及有限调解原则。(2)判决方式上,多了变更判决、协议履行及补偿判决可以选择。对于征收补偿协议与申请法院强制执行的衔接问题,从征收补偿协议是推行行政意志的特殊手段这一认识出发,加之考虑到协议的订立是为了顺利完成征收目标,在协议订立后,若发生相对人无正当理由不履行约定义务且不履行会对社会公共利益造成现实、急迫的危害时,应当允许房屋征收部门有申请法院强制执行的权利。具体运作上,考虑完善行政程序,引入催告程序和说明理由程序来对此进行规范和控制。
[Abstract]:"State-owned land on the housing levy and Compensation Ordinance twenty-fifth of the expropriation compensation agreement property and does not perform the expropriation compensation agreement dispute which take the form of litigation remedy" lawsuit may be not to say yes or no, "according to the vague by circles of theory and practice of administrative contract and civil contract dispute legislation is not qualitative. Clear and easily leads to loss of such cases the court and people to safeguard their own interests. The clear legal nature of the expropriation compensation agreement and determine the dispute resolution of judicial remedy is urgent and important. From the analysis of the internal logic of the expropriation compensation agreement, the housing levy compensation agreement is a product of both parties, on the basis of city construction such as the public interest, the house expropriation departments and expropriation of housing ownership or public housing tenant compensation for expropriation Specific matters agreed under the premise of the agreement. The identification standard of administrative contract and civil contract that the expropriation compensation agreement with the internal structure of the administrative contract. Specifically, first, the main elements of the housing levy compensation agreement Party constant for the administrative subject, namely, District, county people's government to determine the housing levy departments, and in the process of its agreement with administrative role. Second, the signing process of housing levy compensation agreement from the content elements through public power, there are three main aspects: the basic behavior that the expropriation compensation agreement is required to make public interest in the housing levy is based on. The subsequent behavior of the decision, one of the collection of the decision to sign the agreement only way. And the specific content of the compensation agreement signed on around the city, the people's government at the county level Start to impose decisions and compensation. Both parties' autonomy in limited space. Thirdly, through free, equal consultation, if no agreement is reached, the housing levy department shall report to the housing levy decision of the city people's government at the county level, making compensation decisions. Therefore, the contents of the expropriation compensation agreement highlights the strong administrative color. Third, the objective elements, the housing levy compensation agreement concluded on the basis of public interest, in order to safeguard national security, promote economic and social development, in order to stabilize, rapidly advance compensation procedures, promotes administrative body to accomplish administrative goals. In summary, this article discusses the expropriation compensation agreement belongs to the internal logic administrative contract. From the value dimension, positioning the expropriation compensation agreement for administrative contract agreement itself not only makes rational return, clear judicial relief The logical starting point of the path; the administrative contract theory effectively fit in the housing levy, to promote the development of administrative contract theory in the administrative activities; on the realistic level, more conducive to the protection of the legitimate interests of the administrative counterpart. Identify the judicial relief of the logic starting point - Protocol properties, examine the current legislation and practice operation the existing judicial relief is the realistic foundation of perfecting the judicial relief path. Examine the effect level through various legal texts, the legislation of our country mainly has the following defects: first, legal words are fuzzy, the attitude of the nature of the "action" is not clear; the provisions of low order norms against the law, existence incompatible. From the expropriation compensation agreement practice point of view, this kind of case shows the amount of compensation involved, different interests between the principal contradiction is prominent, with the case Have the basic features of "crony effect". Around the court in dealing with such disputes is not a disorder, or by the administrative tribunal into administrative proceedings are reviewed, and more is to civil proceedings. Follow the administrative remedy lawsuit, practical operation suffered two embarrassment: on the one hand can not break through unilateral relief the concept of litigation, litigation of administrative subject can be realized; on the other hand, the judge this kind of dispute, the allocation of burden of proof in administrative litigation, unable to cope with the challenges of two-way review of applicable law and other legal rules micro. However, if ignoring the nature of administrative expropriation compensation agreement and the way to succumb to the civil litigation relief. There are no affinity at the macro level, the litigation status of civil litigation equality, the exercise is not conducive to the supervision of administrative power of the subject is more difficult to be imposed to protect the Right. The micro level, the specific civil trial rules to review the legality of the content of the administrative contract. Different trial mode applicable law in the proceedings, and there is a striking difference between the trial rules, will inevitably lead to the different trial basis which may affect the outcome of the trial justice. "No relief no right", legal nature of the expropriation compensation agreement as the logical starting point, with the goal of improving the existing lack of judicial relief, building expropriation compensation agreement dispute proceedings and judicial review of rules is the right to protection umbrella. Housing levy compensation agreement of the parties in the final form of the administrative law of the rights and obligations relation, administrative legal relation should be adjusted for administrative law, to fulfill the agreement disputes should follow the path of public remedy. With the "Administrative Procedure Law > will be real Housing levy compensation agreement, government concession agreement agreement disputes explicitly included in the scope of accepting cases and judgment on increased agreement and compensation judgment type, be imposed in the housing levy Department default administrative proceedings find the legislative support. From the housing levy Department Party, we also need to ask the court the ruling dispute the reality and give Administrative Rights Party administrative proceedings and the exercise of the right of action is necessary to limit the possible regulation can anomie behavior. Of course, the expropriation compensation agreement into administrative litigation relief channels at the same time, need to make technical changes in the design of specific system improve the specific content of the expropriation compensation agreement. Judicial remedies include the following: first, the legislative mode. The specific contents and procedures of design construction need the help of a The form of legislation to be rendered, the form of judicial interpretation is optimized. Second, construct the specific content of two-way review structure. Proceedings from a reasonable civil procedure: (1) the housing levy department should have the plaintiff qualification of administrative litigation; (2) the burden of responsibility, house expropriation departments shall levy authority the burden of proof, legal behavior, other aspects of the agreement is to follow the "who advocates, the allocation of the burden of proof in civil litigation principles whoproof". Mixed application of public law and private law rules of the expropriation compensation agreement dispute trial, the court should not only apply to the administrative law principles, rules, and combined with the specific provisions the application of the "contract law". The specific as follows: (1) to improve the application of the law, public law and private law. The court not only need the mixed application of specific provisions of the application of the "contract law", but also to follow the principle of administrative law and The rules, including the legal principle of reasonableness and the principle of limited mediation. (2) the judgment, the alteration of judgment, agreement and compensation judgment can be selected. For convergence of the expropriation compensation agreement and apply to the court for enforcement, the expropriation compensation agreement is a special means of implementing administrative will this understanding and consideration of the agreement is in order to successfully complete the collection target, in agreement, if the relative person does not fulfill the contract obligations and not to cause the reality of social and public interests without justifiable reasons, urgent harm, should be allowed to have the house expropriation departments to apply for court enforcement rights. The concrete operation, considering the perfection of administrative procedure introduction, notice procedure and instructions to regulate and control the reason procedure.

【学位授予单位】：华东政法大学
【学位级别】：硕士
【学位授予年份】：2015
【分类号】：D922.3

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