cciia.org.cn 2021-8-3 11:16:19 法(fa)治日報——法(fa)制網
法(fa)治日報全媒體記者 郄建榮
日(ri)(ri)前，國務院總理李克強簽署國務院第743號令(ling)，公布修訂后的(de)(de)《中華人(ren)民共和國土地管理法(fa)實(shi)施條例》（以下簡稱《條例》），自2021年9月(yue)1日(ri)(ri)起(qi)施行(xing)。8月(yue)3日(ri)(ri)，司法(fa)部、自然(ran)資源部負責人(ren)就(jiu)《條例》的(de)(de)有關問(wen)題(ti)回答了記(ji)者提問(wen)。
問：請簡要介紹一下《條(tiao)例》修訂出臺的(de)背景。
答：黨(dang)中央(yang)、國(guo)務(wu)院(yuan)(yuan)高度重視土地(di)(di)(di)(di)(di)制(zhi)度改革。在全面總結土地(di)(di)(di)(di)(di)征收、集體經(jing)營性(xing)建設(she)用地(di)(di)(di)(di)(di)入市、宅(zhai)基(ji)地(di)(di)(di)(di)(di)制(zhi)度改革試點等經(jing)驗的(de)基(ji)礎上，國(guo)務(wu)院(yuan)(yuan)提請(qing)全國(guo)人大常委會對土地(di)(di)(di)(di)(di)管理法(fa)進行了修(xiu)改完善(shan)。修(xiu)改后(hou)的(de)土地(di)(di)(di)(di)(di)管理法(fa)于2020年1月1日起施(shi)行。為增強(qiang)法(fa)律制(zhi)度的(de)可操作性(xing)，確(que)保黨(dang)中央(yang)、國(guo)務(wu)院(yuan)(yuan)關于土地(di)(di)(di)(di)(di)制(zhi)度改革的(de)決策部署落實到位(wei)，亟需對1998年國(guo)務(wu)院(yuan)(yuan)制(zhi)定頒布(bu)的(de)原《條例》進行全面修(xiu)訂。
《條例(li)》在土地管理法(fa)確(que)定的制度(du)(du)框(kuang)架下，聚焦土地征收、集體(ti)經營性(xing)建(jian)設用地入市(shi)、宅(zhai)基地管理等重點問題，進一步細(xi)化(hua)(hua)相關制度(du)(du)措施，強(qiang)化(hua)(hua)對耕地的保護，針對耕地“非(fei)農化(hua)(hua)”、“非(fei)糧化(hua)(hua)”以及“合村(cun)并居(ju)”中違背農民意愿等突出問題，進一步明確(que)制度(du)(du)邊界，強(qiang)化(hua)(hua)法(fa)律(lv)責任，確(que)保土地管理法(fa)得到全面貫徹實(shi)施。
問：《條(tiao)例》如何(he)采取“長牙齒”的(de)硬措施，落實最嚴格(ge)的(de)耕地保護制度，堅決遏制耕地“非農化(hua)(hua)”、防止(zhi)“非糧(liang)化(hua)(hua)”？
答：《條(tiao)例》貫徹落(luo)實黨中央、國務院的決策(ce)部(bu)(bu)署，強(qiang)化對(dui)(dui)(dui)耕(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)(di)特(te)別(bie)是(shi)永久基本農(nong)田(tian)的管(guan)理和保(bao)護(hu)，針(zhen)對(dui)(dui)(dui)耕(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)(di)“非(fei)農(nong)化”、“非(fei)糧化”等(deng)(deng)突出(chu)問題，進一步明確制度邊界，強(qiang)化法(fa)律責(ze)(ze)任。一是(shi)規(gui)(gui)定國家對(dui)(dui)(dui)耕(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)(di)實行(xing)特(te)殊保(bao)護(hu)。明確嚴(yan)格控(kong)制耕(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)(di)轉為林(lin)地(di)(di)(di)(di)(di)(di)(di)、草地(di)(di)(di)(di)(di)(di)(di)、園地(di)(di)(di)(di)(di)(di)(di)等(deng)(deng)其他農(nong)用地(di)(di)(di)(di)(di)(di)(di)，并建(jian)立耕(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)(di)保(bao)護(hu)補(bu)償制度。二(er)是(shi)規(gui)(gui)定開(kai)墾耕(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)(di)驗收制度。明確省級人民政府應當組織(zhi)自然(ran)資源主管(guan)部(bu)(bu)門(men)、農(nong)業農(nong)村主管(guan)部(bu)(bu)門(men)對(dui)(dui)(dui)“占補(bu)平衡(heng)”開(kai)墾的耕(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)(di)進行(xing)驗收。三(san)是(shi)規(gui)(gui)范(fan)和細化土地(di)(di)(di)(di)(di)(di)(di)整(zheng)理。明確制定土地(di)(di)(di)(di)(di)(di)(di)整(zheng)理方案的相關要求、實施(shi)主體(ti)等(deng)(deng)，鼓勵(li)社會(hui)主體(ti)依(yi)法(fa)參與土地(di)(di)(di)(di)(di)(di)(di)整(zheng)理。四(si)是(shi)明確耕(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)(di)保(bao)護(hu)責(ze)(ze)任主體(ti)。規(gui)(gui)定省、自治區、直轄市人民政府對(dui)(dui)(dui)本行(xing)政區域的耕(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)(di)保(bao)護(hu)負(fu)總責(ze)(ze)，國務院對(dui)(dui)(dui)其耕(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)(di)保(bao)護(hu)責(ze)(ze)任目標落(luo)實情況進行(xing)考核。五(wu)是(shi)嚴(yan)格法(fa)律責(ze)(ze)任。加(jia)大了對(dui)(dui)(dui)破壞耕(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)(di)、拒不履行(xing)土地(di)(di)(di)(di)(di)(di)(di)復墾義務等(deng)(deng)違法(fa)行(xing)為的處罰力(li)度，增加(jia)了對(dui)(dui)(dui)耕(geng)(geng)(geng)(geng)地(di)(di)(di)(di)(di)(di)(di)“非(fei)糧化”的處罰規(gui)(gui)定。
問：《條例》在《土地(di)管理法》的基礎上(shang)，對土地(di)征收制度作了哪些細(xi)化(hua)？
答：為(wei)保(bao)護好被征(zheng)(zheng)(zheng)地(di)(di)(di)農(nong)(nong)(nong)民(min)合法(fa)權(quan)益，《條例》對土(tu)(tu)(tu)(tu)地(di)(di)(di)征(zheng)(zheng)(zheng)收(shou)(shou)制(zhi)(zhi)度(du)作了進一步充實(shi)和(he)完善：一是細(xi)化征(zheng)(zheng)(zheng)收(shou)(shou)程序。增加征(zheng)(zheng)(zheng)收(shou)(shou)土(tu)(tu)(tu)(tu)地(di)(di)(di)預公(gong)告制(zhi)(zhi)度(du)，明(ming)(ming)(ming)確土(tu)(tu)(tu)(tu)地(di)(di)(di)現狀調查、社會穩(wen)定風(feng)(feng)(feng)險評估(gu)的(de)要(yao)(yao)求；征(zheng)(zheng)(zheng)收(shou)(shou)土(tu)(tu)(tu)(tu)地(di)(di)(di)申請(qing)(qing)批(pi)準(zhun)后，地(di)(di)(di)方(fang)人(ren)(ren)民(min)政府發布(bu)征(zheng)(zheng)(zheng)收(shou)(shou)土(tu)(tu)(tu)(tu)地(di)(di)(di)公(gong)告，公(gong)布(bu)征(zheng)(zheng)(zheng)收(shou)(shou)范圍、時間等具(ju)體工作安(an)排，對個別未達成(cheng)征(zheng)(zheng)(zheng)地(di)(di)(di)補償安(an)置協(xie)議(yi)的(de)作出征(zheng)(zheng)(zheng)地(di)(di)(di)補償安(an)置決定，并(bing)依法(fa)組織(zhi)實(shi)施。二是規范征(zheng)(zheng)(zheng)收(shou)(shou)補償。規定地(di)(di)(di)方(fang)人(ren)(ren)民(min)政府應當(dang)落實(shi)土(tu)(tu)(tu)(tu)地(di)(di)(di)補償費(fei)(fei)等有(you)(you)(you)關費(fei)(fei)用，保(bao)證(zheng)足(zu)額(e)到位，專款(kuan)專用，有(you)(you)(you)關費(fei)(fei)用未足(zu)額(e)到位的(de)，不(bu)得批(pi)準(zhun)征(zheng)(zheng)(zheng)收(shou)(shou)土(tu)(tu)(tu)(tu)地(di)(di)(di)。明(ming)(ming)(ming)確省、自治區(qu)、直轄市制(zhi)(zhi)定土(tu)(tu)(tu)(tu)地(di)(di)(di)補償費(fei)(fei)、安(an)置補助費(fei)(fei)的(de)分配(pei)辦法(fa)。三是強化風(feng)(feng)(feng)險管控(kong)。明(ming)(ming)(ming)確將社會穩(wen)定風(feng)(feng)(feng)險評估(gu)作為(wei)申請(qing)(qing)征(zheng)(zheng)(zheng)收(shou)(shou)土(tu)(tu)(tu)(tu)地(di)(di)(di)的(de)重(zhong)要(yao)(yao)依據，并(bing)對風(feng)(feng)(feng)險防范措施和(he)處置預案(an)作出規定。四是保(bao)障被征(zheng)(zheng)(zheng)地(di)(di)(di)農(nong)(nong)(nong)民(min)的(de)知情權(quan)、參(can)(can)與(yu)權(quan)、監督權(quan)。要(yao)(yao)求社會穩(wen)定風(feng)(feng)(feng)險評估(gu)應當(dang)有(you)(you)(you)被征(zheng)(zheng)(zheng)地(di)(di)(di)的(de)農(nong)(nong)(nong)村(cun)(cun)集體經濟組織(zhi)及其成(cheng)員(yuan)(yuan)、村(cun)(cun)民(min)委員(yuan)(yuan)會和(he)其他利(li)害關系人(ren)(ren)參(can)(can)加；多數被征(zheng)(zheng)(zheng)地(di)(di)(di)的(de)農(nong)(nong)(nong)村(cun)(cun)集體經濟組織(zhi)成(cheng)員(yuan)(yuan)認為(wei)擬定的(de)征(zheng)(zheng)(zheng)收(shou)(shou)補償安(an)置方(fang)案(an)不(bu)符合法(fa)律、法(fa)規規定的(de)，縣級以上地(di)(di)(di)方(fang)人(ren)(ren)民(min)政府應當(dang)組織(zhi)聽證(zheng)。
問：《條例》在農民(min)宅基(ji)地合法權益(yi)保障方面作了哪些規(gui)定？
答：《條(tiao)例(li)》在宅(zhai)基(ji)(ji)(ji)地管理(li)(li)等直接關系農(nong)(nong)(nong)(nong)民(min)利(li)益的(de)(de)問題上，只做(zuo)加法(fa)、不做(zuo)減法(fa)，并(bing)針(zhen)對(dui)“合村并(bing)居”中違(wei)背農(nong)(nong)(nong)(nong)民(min)意(yi)愿等突出問題作出了限(xian)制(zhi)性規定。一是保障農(nong)(nong)(nong)(nong)民(min)合理(li)(li)的(de)(de)宅(zhai)基(ji)(ji)(ji)地需求(qiu)。要(yao)求(qiu)縣級以(yi)上地方人民(min)政府按(an)照國家規定安排建設(she)用地指標，合理(li)(li)保障本行(xing)政區域農(nong)(nong)(nong)(nong)民(min)宅(zhai)基(ji)(ji)(ji)地需求(qiu)。市、縣、鄉（鎮）國土空間規劃和(he)村莊(zhuang)規劃要(yao)科學劃定宅(zhai)基(ji)(ji)(ji)地范(fan)圍(wei)。二是規范(fan)宅(zhai)基(ji)(ji)(ji)地管理(li)(li)。明確宅(zhai)基(ji)(ji)(ji)地申(shen)請(qing)、審(shen)核批準(zhun)程序；農(nong)(nong)(nong)(nong)民(min)依(yi)法(fa)自愿有償退出的(de)(de)宅(zhai)基(ji)(ji)(ji)地，應當優先用于保障該農(nong)(nong)(nong)(nong)村集體(ti)經濟組織成員的(de)(de)宅(zhai)基(ji)(ji)(ji)地需求(qiu)。三是禁(jin)止(zhi)(zhi)侵犯農(nong)(nong)(nong)(nong)民(min)依(yi)法(fa)取(qu)得(de)的(de)(de)宅(zhai)基(ji)(ji)(ji)地權益。明確禁(jin)止(zhi)(zhi)違(wei)背農(nong)(nong)(nong)(nong)民(min)意(yi)愿強(qiang)制(zhi)流轉(zhuan)宅(zhai)基(ji)(ji)(ji)地，禁(jin)止(zhi)(zhi)違(wei)法(fa)收回(hui)農(nong)(nong)(nong)(nong)民(min)依(yi)法(fa)取(qu)得(de)的(de)(de)宅(zhai)基(ji)(ji)(ji)地，禁(jin)止(zhi)(zhi)以(yi)退出宅(zhai)基(ji)(ji)(ji)地作為農(nong)(nong)(nong)(nong)民(min)進城落戶(hu)的(de)(de)條(tiao)件，禁(jin)止(zhi)(zhi)強(qiang)迫農(nong)(nong)(nong)(nong)民(min)搬遷退出宅(zhai)基(ji)(ji)(ji)地。
問：《條例》在《土地(di)管理法》的(de)基礎上，對(dui)集(ji)體經營性建設(she)用地(di)“入市(shi)”制度(du)作了(le)哪些細化？
答：完善集(ji)(ji)體(ti)經營性建(jian)設用(yong)地(di)(di)“入市”制度(du)，對于建(jian)立完善城(cheng)鄉統一的建(jian)設用(yong)地(di)(di)市場具有十分重(zhong)要的意(yi)義(yi)。《條例》主(zhu)要在以下方(fang)面(mian)(mian)作了進一步細化：一是加(jia)強(qiang)規(gui)(gui)(gui)劃(hua)(hua)管控。明確國土(tu)空間規(gui)(gui)(gui)劃(hua)(hua)應(ying)當統籌并(bing)合理安排集(ji)(ji)體(ti)經營性建(jian)設用(yong)地(di)(di)布(bu)局和用(yong)途(tu)，自(zi)然(ran)資源(yuan)主(zhu)管部門應(ying)當依(yi)據國土(tu)空間規(gui)(gui)(gui)劃(hua)(hua)提出規(gui)(gui)(gui)劃(hua)(hua)條件，明確“入市”土(tu)地(di)(di)界址、面(mian)(mian)積、用(yong)途(tu)、開(kai)發(fa)建(jian)設強(qiang)度(du)，并(bing)會(hui)同有關(guan)部門提出產業準入和生(sheng)態環境保護等要求。二(er)是明確交易(yi)規(gui)(gui)(gui)則。規(gui)(gui)(gui)定土(tu)地(di)(di)“入市”需編(bian)制相(xiang)(xiang)應(ying)方(fang)案，雙方(fang)要簽(qian)訂書(shu)面(mian)(mian)合同，并(bing)報自(zi)然(ran)資源(yuan)主(zhu)管部門備案；土(tu)地(di)(di)使(shi)用(yong)者應(ying)當及時支(zhi)付用(yong)地(di)(di)價款，依(yi)法繳納相(xiang)(xiang)關(guan)稅費；“入市”土(tu)地(di)(di)使(shi)用(yong)權再流轉的，應(ying)當簽(qian)訂書(shu)面(mian)(mian)合同，并(bing)書(shu)面(mian)(mian)通知土(tu)地(di)(di)所有權人。
問：《條(tiao)例》在(zai)優化(hua)用地審(shen)批程序方面作(zuo)了哪些規定(ding)？
答：《條例》貫徹落實(shi)國務院用(yong)地(di)(di)(di)(di)審(shen)批(pi)(pi)(pi)(pi)有關改(gai)革精神，對農(nong)轉(zhuan)(zhuan)用(yong)審(shen)批(pi)(pi)(pi)(pi)制度作了優化。一是(shi)(shi)減少審(shen)批(pi)(pi)(pi)(pi)層級。規定(ding)(ding)市、縣人民政(zheng)府組織自然資(zi)源等(deng)部門擬訂農(nong)用(yong)地(di)(di)(di)(di)轉(zhuan)(zhuan)用(yong)方(fang)案(an)(an)(an)，報有批(pi)(pi)(pi)(pi)準(zhun)權的(de)人民政(zheng)府批(pi)(pi)(pi)(pi)準(zhun)，刪除現(xian)行條例“逐級”上報審(shen)批(pi)(pi)(pi)(pi)的(de)規定(ding)(ding)。二是(shi)(shi)簡化審(shen)批(pi)(pi)(pi)(pi)材料。對原(yuan)“一書(shu)四(si)方(fang)案(an)(an)(an)”（建設(she)(she)用(yong)地(di)(di)(di)(di)呈報書(shu)和農(nong)用(yong)地(di)(di)(di)(di)轉(zhuan)(zhuan)用(yong)方(fang)案(an)(an)(an)、補充耕地(di)(di)(di)(di)方(fang)案(an)(an)(an)、征(zheng)收土地(di)(di)(di)(di)方(fang)案(an)(an)(an)和供地(di)(di)(di)(di)方(fang)案(an)(an)(an)）進行合并調(diao)整，整合為農(nong)用(yong)地(di)(di)(di)(di)轉(zhuan)(zhuan)用(yong)方(fang)案(an)(an)(an)和征(zheng)收土地(di)(di)(di)(di)申請，并明(ming)確(que)農(nong)用(yong)地(di)(di)(di)(di)轉(zhuan)(zhuan)用(yong)方(fang)案(an)(an)(an)內容。三是(shi)(shi)合并審(shen)批(pi)(pi)(pi)(pi)事項(xiang)。合并辦(ban)理單獨選址(zhi)建設(she)(she)項(xiang)目用(yong)地(di)(di)(di)(di)預(yu)審(shen)與選址(zhi)意見書(shu)。
問：《條例》在建設用地管(guan)理(li)方面作了哪些規(gui)定(ding)？
答：為(wei)提高土(tu)(tu)地(di)(di)(di)節約(yue)集約(yue)利用(yong)(yong)(yong)(yong)水(shui)平，保障土(tu)(tu)地(di)(di)(di)的(de)可持續利用(yong)(yong)(yong)(yong)，《條例》就(jiu)建(jian)(jian)(jian)設(she)(she)(she)用(yong)(yong)(yong)(yong)地(di)(di)(di)管(guan)理(li)作了以下規定(ding)(ding)：一是(shi)明確建(jian)(jian)(jian)設(she)(she)(she)用(yong)(yong)(yong)(yong)地(di)(di)(di)要(yao)求。規定(ding)(ding)建(jian)(jian)(jian)設(she)(she)(she)使用(yong)(yong)(yong)(yong)土(tu)(tu)地(di)(di)(di)的(de)，應當(dang)符合國土(tu)(tu)空間規劃(hua)、土(tu)(tu)地(di)(di)(di)利用(yong)(yong)(yong)(yong)年(nian)度計劃(hua)和用(yong)(yong)(yong)(yong)途(tu)管(guan)制(zhi)要(yao)求，嚴格執行(xing)(xing)建(jian)(jian)(jian)設(she)(she)(she)用(yong)(yong)(yong)(yong)地(di)(di)(di)標(biao)準，并采取有效(xiao)措施(shi)防(fang)止、減少土(tu)(tu)壤污染。二(er)是(shi)嚴格土(tu)(tu)地(di)(di)(di)利用(yong)(yong)(yong)(yong)計劃(hua)管(guan)理(li)。要(yao)求各級人民(min)政府加強土(tu)(tu)地(di)(di)(di)利用(yong)(yong)(yong)(yong)計劃(hua)管(guan)理(li)，實行(xing)(xing)建(jian)(jian)(jian)設(she)(she)(she)用(yong)(yong)(yong)(yong)地(di)(di)(di)總量(liang)控制(zhi)，縣級以上地(di)(di)(di)方人民(min)政府自然資源主管(guan)部門應當(dang)將(jiang)年(nian)度建(jian)(jian)(jian)設(she)(she)(she)用(yong)(yong)(yong)(yong)地(di)(di)(di)供應總量(liang)、結構(gou)、時(shi)序、地(di)(di)(di)塊、用(yong)(yong)(yong)(yong)途(tu)等向社(she)會(hui)公布，以穩定(ding)(ding)社(she)會(hui)預期。三是(shi)完善臨時(shi)用(yong)(yong)(yong)(yong)地(di)(di)(di)規定(ding)(ding)。規定(ding)(ding)臨時(shi)用(yong)(yong)(yong)(yong)地(di)(di)(di)期限一般不超過(guo)二(er)年(nian)，建(jian)(jian)(jian)設(she)(she)(she)周期較長(chang)的(de)能(neng)源、交通、水(shui)利等基礎設(she)(she)(she)施(shi)建(jian)(jian)(jian)設(she)(she)(she)臨時(shi)用(yong)(yong)(yong)(yong)地(di)(di)(di)期限不超過(guo)四年(nian)。
日期：2021-8-3 11:16:19 | 關閉 |
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