作为复合行政行为的城市规划

摘要

在合法的私有财产保护入宪和物权法实施后,城市规划的法律控制一直是学界广泛关注的课题.但由于对所编制的城市规划的法律性质认识的不一致则产生了不同的结论.本文借用行政法中的基本理论--行政行为,来分析城市规划的法律职能.本文先从抽象行政行为与具体行政行为开始辨析,认为城市规划是具有具体行为特征的抽象行政行为.如果从具体的行政行为来分析,城市规划则是一种兼有行政指导、行政给付、行政强制、行政征用等特性的复合行政行为.但城市规划的这些行为是"不成熟"或者是规制性的行政行为.对城市规划行政行为的分析,目的是能够有效地对城市规划进行法律控制.%The legal status of urban planning is a hot issue after the enforcement of the Real Right Act. But the understanding to the legal status of urban planning is different. This paper examines the legal function of urban planning by administrative behavior which is the basic principle in administrative law. Starting with the discrimination of abstract administrative behavior and concrete administrative behavior, this paper argues that the urban planning is an abstract behavior with concrete behavior feature. From the perspective of concrete behavior, urban planning is a multi-behavior.However this behavior is immature or mandatory.