农民权益保障视角下的土地征用程序研究*——以河北省5个建设项目为例

STUDY ON THE PROCEDURE OF LAND REQUISITION FROM THE PERSPECTIVE OF PROTECTING PEASANTS′ RIGHTS AND INTERESTS*——TAKING FIVE CONSTRUCTION PROJECTS IN HEBEI PROVINCE AS AN EXAMPLE

关键词:  问卷调查征地程序缺陷农民权益保障实证研究河北省

Key words:  questionnaire survey  defects in land acquisition procedures  the protection of farmers′ rights and interests  empirical research  Hebei province

摘要:

［目的］以河北省奥运村核心区、京张高铁、大唐电厂、京蔚高速、延崇高速5个建设项目为研究对象，分析我国现行征地程序制度在实际实施中存在的问题，并提出有针对性的政策建议，为我国征地程序的完善和征地工作的开展提供参考。［方法］通过问卷调查和访谈了解农民对于征地的认知，从自由的事先知情的同意（FPIC）原则的4个方面对征地程序制度及实施情况进行对比分析。［结果］（1）我国的土地征用程序不能完全符合FPIC原则,（2）征地程序实施的偏差使农民权益受损,（3）征地中的非正式治理方式激化征地矛盾,（4）政府和农民的对立关系破坏平等协商机制,（5）政府对不同规模征地项目的实施行为存在明显差异。［结论］保障农民权益和减少用地矛盾需要从FPIC层面完善征地程序，增强在实施中的程序公开和透明，并打破政府和农民之间的对话壁垒，实现协商的“全过程性”和“灵活性”。

Abstract:

Based on the investigation of five core areas of Olympic Village in Hebei province, Beijing Zhangjiakou Railway, Datang Power Plant, BeiJing Yuxian Expressway and Yanqing Chongli Expressway, this paper analyzed land acquisition procedures and problems in real implementation in China, and proposed targeted policy recommendations, so as to provide reference for the improvement of land acquisition procedures and the development of land expropriation work in China. It analyzed the peasants′ cognition of land acquisition through questionnaires and interviews, compared the system and implementation of the land acquisition procedure from the four aspects of the free prior informed consent (FPIC) principle. The results showed that (1) The land acquisition procedure in our country could not fully match the FPIC principle; (2) The deviation of the implementation of the land acquisition procedure impaired the rights and interests of peasants; (3) The informal governance in land expropriation intensified the contradiction in land acquisition; (4) The antagonistic relationship between the government and the farmers undermined the equal consultation mechanism; (5) The government had obvious differences in the implementation of land acquisition projects of different scales. Based on the conclusion, it is suggested that it is necessary to improve the process of land expropriation from the perspective of FPIC, enhance the openness and transparency of the procedures in implementation, and break down barriers to dialogue between the government and farmers, so as to achieve "full process" and "flexibility" of consultation.