土地征收审批行为的性质认定及其意义 ———基于多阶段行政行为理论的分析

土地征收审批行为是具体行政行为还是行政内部行为,理论界和实务界对此并无一致观点,这不仅导致了对土地征收审批行为管理的混乱,还致使被征收人寻求司法救济的困顿.土地征收行为属于多阶段行政行为,按照显名主义原则,行政主体应为公告机关,土地征收审批行为只是审批机关的参与行为,是行政内部行为.但是,借鉴台湾地区尤其是德国的理论学说与司法实践,土地征收审批行为应属于显名主义原则的例外情形,在性质上应被认定为具体行政行为.科学合理地认定土地征收审批行为的性质,对于构建土地征收行为的正当程序及明晰被征收人权利救济机制具有十分重要的意义.

Determination of the Nature of Examination and Approval Act on Land Expropriation and Its Significance——Based on the Theory of Multi-stage Administrative Act

In nowadays, whether examination and approval act on land expropriation belongs to specific administrative act or internal administrative act creates many heated debates. These consequences not only cause managerial disorder to exam and approve on land expropriation, but also led the condemnee to fall into trouble in the process of seeking judicial relief. Land expropriation act is a kind of multi-stage administrative act. According to the nominalism principle, the administrative subject of land expropriation act is the agency that publishes the announcement of expropriating land, and examination and approval act is participation behavior of the examination and approval agency, belonging to internal administrative act. However, learning from Taiwan, especially the German doctrine and judicial practice, we fully believe that examination and approval act should be classified into exceptions of the nominalism principle, and should be considered as a specific admin- istrative act. Scientific and reasonable determination of the nature of examination and approval act is conducive to construct due process of land expropriation and clarify the right relief mechanism of the condemnee.