Land Administration Law of the People's Republic of China


中文版



Land Administration Law of the People's Republic of China
(Adopted by the 16th Session of the Standing Committee of the Sixth National People's Congress on June 25, 1986, amended by the 5th Session of the Standing Committee of the Seventh National People's Congress on December 29, 1988)

Contents

Chapter I General Provisions
Chapter II Ownership of and Right to the Use of Land
Chapter III Utilization and Protection of Land
Chapter IV Use of Land for State Construction
Chapter V Use of Land for Township (Town) and Village Construction
Chapter VI Legal Liability
Chapter VII Supplementary Provisions

Chapter I General Provisions

Article 1
For the purposes of strengthening land administration, guaranteeing the socialist public ownership of land, protecting and developing land resources, making proper use of land, protecting effectively cultivated land and satisfying the needs of socialist modernization, this Law is hereby enacted.

Article 2
The People's Republic of China adopts socialist public ownership of land, that is, ownership by the whole people and collective ownership by the working people.

No unit or individual may seize, buy or sell land or transfer land in any other unlawful method.

The State may, for the needs of the public interest, requisition land owned by the collective according to law.

The right to the use of State-owned land and collective-owned land may be transferred according to law. Specific measures for the transfer of the right to the use of land shall be made separately by the State Council.

The State adopts a system of the compensated use of State-owned land according to law. Specific measures for the paid use of State-owned land shall be made separately by the State Council.

Article 3
The people's governments at various levels must observe and implement the guiding principles of valuing highly the land and using land rationally, make overall plans, strengthen land administration, protect and develop land resources, and prevent acts of unlawful possession of cultivated land and irrational use of land.

Article 4
The people's governments shall reward the units or individuals that gain outstanding achievements in protecting and developing land resources, using rationally the land and carrying out relevant scientific research.

Article 5
The land administration department of the State Council shall be in charge of the unified administration of the land throughout the country.

The land administration departments of local people's governments at or above county level shall be in charge of the unified administration of the land in their respective administrative areas, the setup of such organizations shall be decided by the provinces, autonomous regions and municipalities directly under the Central Government in accordance with actual condition.

The people's governments at the township level shall be in charge of land administration in their respective administrative areas.

Chapter II Ownership of and Right to the Use of Land

Article 6
Land in the urban areas of cities shall be owned by the whole people, that is, owned by the State.

Land in rural areas and suburban areas of cities shall be owned by the collective, except for those portions which belong to the State according to law; homestead and private plots of cropland and hilly land shall be owned by the collective.

Article 7
State-owned land may be allocated to be used by units under ownership by the whole people or units under the collective ownership according to law, State-owned land and collective-owned land may be determined to be used by individuals according to law. Units and individuals that use land shall have the obligation to protect and manage the land and make rational use of such land.

Article 8
Collective-owned land shall belong to the farmers' collectives of villages, and shall be operated and managed by collective agricultural economic organizations such as village agricultural production cooperatives or villagers' committees. Land already belonging to peasant collective economic organizations of townships (towns) may fall under the ownership by peasant collectives in the townships (towns).

In case where land owned by peasant collectives of a village already belongs to two or more collective agricultural economic organizations in the village separately, ownership of such land may be assumed by peasant collectives in the respective collective agricultural economic organizations.

Article 9
Land owned by the collective shall be registered and recorded by the people's governments at the county level, which shall, upon verification, issue certificates to affirm the ownership of such land.

State-owned land used according to law by units under ownership by the whole people or under collective ownership or used by individuals shall be registered and recorded by local people's governments at or above the county level, which shall, upon verification, issue certificates to affirm their right to the use of such land.

Confirmation and verification of the ownership of or the right to the use of forest land or grassland, and confirmation and verification of the right to the use of water surface or beaches for aquiculture shall be dealt with in accordance with relevant provisions of the Forestry Law, the Grassland Law and the Fisheries Law respectively.

Article 10
In case that any change is to be made in land ownership or in the right to the use of land according to law, the formalities for registering such change must be gone through and the certificate changed accordingly.

Article 11
Ownership of land and right to the use of land shall be protected by law, no unit or individual may encroach upon.

Article 12
Land owned by the collective and State-owned land used by units under ownership by the whole people or under collective ownership may be operated under a contract by collectives or individuals to engage in agricultural, forestry, livestock and fishery production.

Collectives or individuals that contract to operate land shall have the obligation to protect such land and make rational use of it according to the purposes of use provided for by the contract.

The right to operate land under contract shall be protected by law.

Article 13
Disputes concerning ownership of land and the right to the use of land shall be solved through consultation between the parties; if such consultation fails, the people's government shall settle such disputes.

Disputes concerning ownership of land and the right to the use of land between units under ownership by the whole people, between units under collective ownership, and between units under ownership by the whole people and units under collective ownership shall be settled by the people's governments at or above the county level.

Disputes concerning the right to the use of land between individuals, between individuals and units under ownership by the whole people, or between individuals and units under collective ownership shall be settled by the people's governments at the township or county level.

If a party refuses to accept the decision of the relevant people's government, the party may initiate legal proceedings to a people's court within 30 days from the day on which notification of the decision is received.

Prior to a settlement of a dispute concerning ownership of land or the right to the use of land, no party may alter the existing condition of the disputed land or destroy anything attached to it.

Chapter III Utilization and Protection of Land

Article 14
The State shall establish a land survey and statistics system. Land administration departments of the people's governments at or above the county level together with departments concerned shall carry out land surveys and prepare statistics thereof.

Article 15
The people's governments at all levels shall draw up overall plans for land utilization, the overall plans for land utilization of local people's governments shall be implemented upon approval by the people's governments at higher levels.

Article 16
Urban planning shall be coordinated with the overall plan for land utilization. Within areas covered by urban planning, utilization of land shall be consistent with such urban planning.

In the safety zones of rivers and lakes, utilization of land shall be consistent with the comprehensive plans of development and utilization of rivers and lakes.

Article 17
Development of State-owned barren hills, wastelands and beaches for agricultural, forestry, livestock and fishery production shall be subject to the approval of people's governments at or above the county level, such land may be assigned to be used by the units that develop it.

Article 18
If a piece of land from which minerals have been extracted or soil has been removed can be reclaimed, the land-using unit or individual shall be responsible for reclaiming it and restoring its use.

Article 19
Subject to the approval of a people's government at or above the county level, a land administration department may withdraw the right to the use of State-owned land and cancel the land-use certificate of the land-using unit under any of the following circumstances:

(1). land-using unit has been dissolved or moved away;

(2). the land has been set idle for two consecutive years without the consent of the original approving authority;

(3). the land is used in a way other than the approved use; or

(4). highways, railways, airports and mining areas have been abandoned upon verification and approval.

Article 20
The people's governments at various levels shall take measures to protect cultivated land, maintain irrigation and drainage installations, improve soil, increase fertility of land, prevent soil from desertification, control soil salinization and soil erosion and prohibit acts allowing land to lie waste and destroying cultivated land.

Economy must be practiced in using land for State construction and township (town) and village construction, cultivated land shall not be used when wasteland can serve the purpose; good land shall not be used when poor land is available.

Chapter IV Use of Land for State Construction

Article 21
When the State needs to requisition land owned by the collective or to use State-owned land for economic, cultural or national defense construction projects and for constructing public works, such requisition shall be dealt with in accordance with the provisions of this Chapter.

Article 22
Upon approval, construction units may apply for use of land needed for State construction projects which are included in the State fixed assets investment plan or which are approved to constructed.

Article 23
When land is to be requisitioned for State construction, the construction unit must, according to procedures specified for State capital construction, apply to the land administration department of the local people's government at or above the county level by presenting a project plan description or other documents of approval issued by the competent department under the State Council or a local people's government at or above the county level, after the application has been examined and approved by the people's government at or above the county level, its land administration department shall allocate land thereto.

When the State requisitions land for construction, the units whose land is requisitioned should subordinate their wishes to the needs of the State and may not obstruct the requisition.

Article 24
If land owned by the collective is requisitioned for State construction, the State shall have the ownership to such land while the unit using the land shall have only the right to the use.

Article 25
Requisition of more than 1,000 mu of cultivated land or more than 2,000 mu of other types of land for State construction shall be subject to approval of the State Council.

Requisition of land in the administrative areas of provinces or autonomous regions shall be subject to the approval of the governments of those provinces or regions; Requisition of less than 3 mu of cultivated land and less than 10 mu of other types of land shall be subject to the approval of the people's governments at the county level; The limits of approval authority of the people's governments of municipalities under provinces and of autonomous prefectures shall be determined by the standing committees of people's congresses of the respective provinces and autonomous regions.

Requisition of land within the administrative areas of municipalities directly under the Central Government shall be subject to the approval of the people's governments of those municipalities; The limits of approval authority of the people's governments of districts and counties of municipalities directly under the Central Government shall be decided by the standing committees of the people's congresses of such municipalities.

Article 26
Application for the land needed for a single construction project shall be submitted for approval according to the overall design, and may not be broken up into parts. Requisition of land for a project which is being constructed in stages shall be conducted stage by stage but not long before it is used. Application for land needed for the construction of railways, highways, oil or water pipelines shall be presented for approval section by section to complete the procedures for land requisition.

Article 27
Units using requisitioned land for State construction shall pay land compensation. The compensation for requisition of cultivated land shall be three to six times the average annual output value of the requisitioned land for the three years prior to such requisition. Provinces, autonomous regions and municipalities directly under the Central Government shall create standards of compensation for requisition of other types of land with reference to the standard of compensation for requisition of cultivated land.

Standards of compensation for attachments and young crops on the requisitioned land shall be stipulated by provinces, autonomous regions and municipalities directly under the Central Government.

Units using requisitioned vegetable land in city suburbs shall pay for a development and construction fund for new vegetable land in accordance with relevant regulations of the State.

Article 28
In addition to payment of compensation when requisitioning land for State construction, the land-using units shall also pay resettlement subsidies.

Resettlement subsidies for requisition of cultivated land shall be calculated according to the agricultural population needing to be resettled. The agricultural population needing to be resettled shall be calculated by dividing the amount of requisitioned cultivated land by the average amount of original cultivated land per person of the unit whose land is to be requisitioned. The standard resettlement subsidy to be divided among members of the agricultural population to be resettled shall be two to three times the average annual output value of each mu of the requisitioned cultivated land for the three years preceding such requisition. However, the maximum resettlement subsidy for each mu of requisitioned cultivated land shall not exceed ten times its average annual output value for the three years preceding such requisition. Provinces, autonomous regions and municipalities directly under the Central Government shall stipulate respective standards for resettlement subsidies for requisition of other types of land with reference to the standard resettlement subsidy for cultivated land.

Article 29
In case that land compensation and resettlement subsidies paid in accordance with Articles 27 and 28 of this Law are still insufficient to maintain the original living standard of the farmers to be resettled, the resettlement subsidy may be increased upon approval of people's governments of provinces, autonomous regions or municipalities directly under the Central Government. However, the total land compensation and resettlement subsidy may not exceed 20 times the average yearly output value of the requisitioned land for the three years preceding such requisition.

Article 30
All kinds of compensation and resettlement subsidies paid for requisitioned land on account of State construction, except for the compensation for individually owned attachments or young crops on the requisitioned land which shall be paid to the individuals, shall be used by the units whose land is requisitioned to develop production, to provide employment for the extra labor force due to requisition of the land and as living subsidies for people who cannot be employed; such funds may not be used for other purposes and may not be appropriated by any unit or individual.

Article 31
Land administration departments of local people's governments at or above the county level shall coordinate the units whose land is requisitioned, units using requisitioned land and other units concerned to help resettle the extra labor force due to requisition of land for State construction by developing agricultural and sideline production and setting up township (town) or village enterprises; If there are still people who cannot be resettled, the qualified persons among them may be given work in the units using the requisitioned land or other units under collective ownership or ownership by the whole people and the corresponding resettlement subsidy shall be transferred to the units which absorb such a labor force.

In case that all land of a unit is requisitioned, members originally registered in agricultural households may change their status to non-agricultural households upon approval of people's governments of provinces, autonomous regions or municipalities directly under the Central Government. The people's governments at or above the county level shall consult with the relevant township (town) or village to decide upon the settlement of the original collective-owned property and the compensation and resettlement subsidies received, which shall be used for organizing production and as living subsidies for those who cannot be employed, but may not be distributed privately.

Article 32
The compensation standard for requisition of land and the means of resettling people relocated due to construction of large or medium-sized water conservancy or hydroelectric projects shall be made separately by the State Council.

Article 33
Storage sites for materials, transportation passages and other temporary installations of construction projects shall be situated within the limits of the requisitioned land as far as possible. When additional land for temporary use is truly necessary, the construction units may apply to the agencies authorizing the use of land for projects, specifying the amount of land and the time limit for such temporary use, and shall sign temporary land-use agreements with collective agricultural economic organizations upon such applications being approved. Construction units shall pay compensation each year during the time limit based on the average annual output value of such land for the preceding three years. No permanent structures shall be erected on such land for temporary use. Construction units shall restore the production conditions of such land and return it promptly after the period for temporary use expires.

Requisition of land for the temporary uses of erecting lines above the ground, laying pipelines underground, building other underground projects and carrying out geological prospecting shall be subject to the approval of local people's governments at the county level, and compensation shall be paid in accordance with the provisions of the preceding paragraph.

Construction units shall ask for approval from local people's governments at the county level if land surveys are needed for choosing construction sites and shall pay proper compensation for any losses caused.

Article 34
For the purpose of State construction, State-owned barren hills, wasteland and State-owned land presently used by other units shall be allocated only after approval has been granted in accordance with due procedures and limits of approval authority over land requisition for State construction. The State-owned barren hills and wasteland shall be allocated without charge. Construction units which require State-owned land currently used by other units shall pay proper compensation to those units if losses are caused by the requisition and shall be responsible for moving such units if necessary.

Article 35
Requisition of land for construction by urban units under collective ownership shall be dealt with in accordance with the provisions in this Chapter.

Article 36
When land owned by collectives is needed by an enterprise under ownership by the whole people or an enterprise under ownership by collectives in cities and a collective agricultural economic organization, for setting up a jointly operated enterprise under joint investment, application thereof must be submitted to the land administration department of a local people's government at or above the county level by presenting a project plan description or other documents of approval issued by the competent authority under the State Council or a local people's government at or above the county level in accordance with procedures specified for State capital construction. The people's government at or above the county level shall approve the application within the limits of authority for approval of land requisitions for State construction. The land approved for such use may be requisitioned in accordance with the provisions for land requisitions for State construction, or the right to the use of such land may be offered by a collective agricultural economic organization as a condition for agreement on joint operation.

Chapter V Use of Land for Township (Town) and Village Construction

Article 37
Plans for township (town) and village construction shall be made in accordance with the principles of rational distribution and economical use of land, and shall be put into practice upon approval of the people's governments at the county level. Plans for township (town) or village construction within planned areas in cities shall be put into practice upon approval of municipal people's governments.

Rural residence construction, township (town) and village enterprise construction, township (town) and village public works and public welfare construction shall be conducted in accordance with construction plans of the township (town) and village concerned.

Article 38
Rural residents shall use original house sites and idle lots in villages to build residences. If cultivated land needs to be used, the matter shall be subject to the examination and verification of the people's governments at the township level and the approval of the people's governments at the county level. Use of original house sites, idle lots and other land in villages shall be subject to approval of the people's governments at the township level.

The land that rural residents use to build residences shall not exceed the standards set by provinces, autonomous regions and municipalities directly under the Central Government.

Approval for other house sites shall not be granted to those who have sold or leased their houses.

Article 39
A township (town) or village enterprise that needs land for construction must apply to the land administration department of the people's government at the county level by presenting a project plan description or other documents of approval issued by the local government at or above the county level; the application shall be subject to the approval of local people's government at or above the county level within the limits of approval authority granted by the relevant province, autonomous region or municipality directly under the Central Government.

Land required for construction by township (town) and village enterprises must be strictly controlled. Provinces, autonomous regions and municipalities directly under the Central Government may stipulate respective land use standards after taking into consideration the various trades and operational scope of township (town) and village enterprises.

Township (town) enterprises which use land owned by village farmers' collectives for construction shall make proper compensation to the units which provide land for such use and shall properly arrange the production and livelihood of farmers concerned in accordance with respective provisions of their province, autonomous region or municipality directly under the Central Government.

Article 40
Applications for the use of land required by townships (towns) and villages for public works and public welfare construction shall, after examination and verification by the people's governments at the township level, be submitted to the departments of land administration under the governments at the county level and shall be approved by the local people's governments at or above the county level in line with the limits of authority for approval as prescribed by the provinces, autonomous regions and municipalities directly under the Central Government.

Article 41
When non-agricultural households in cities or towns need to use land owned by the collective to build residences, they must obtain the approval of people's governments at the county level. The size of land for such use shall not exceed the standards set by provinces, autonomous regions and municipalities directly under the Central Government, and compensation and resettlement subsidies shall be paid with reference to the standards provided for land requisition for State construction.

Article 42
Local people's governments at various levels may set quotas for use of land in township (town) and village construction and submit such quotas to the people's governments at the next higher level for approval and implementation.

Chapter VI Legal Liability

Article 43
Units under ownership by the whole people and urban units under collective ownership that unlawfully encroach upon land without approval or with fraudulently obtained approval shall be ordered to return such land and demolish, within a given period of time, any structures or other installations newly erected thereon, or such structures or installations shall be confiscated, and fines shall be imposed concurrently; administrative penalty shall be given to those who are in charge of the units for such unlawful encroachment, either by the units to which they belong or by offices at a higher level.

If the amount of land occupied exceeds the approved amount, the excessive portion shall be handled as in the case of unlawful encroachment of land.

Article 44
Township (town) and village enterprises which unlawfully encroach upon land without approval or with fraudulently obtained approval shall be ordered to return such land and demolish, within a given period of time, any structures or other installations newly erected thereon, or such structures or installations shall be confiscated, and fines may be imposed thereon concurrently.

If the amount of land occupied exceeds the approved amount, the excessive portion shall be handled as in the case of unlawful encroachment of land.

Article 45
Rural residents who unlawfully encroach upon land to build residences without approval or with fraudulently obtained approval shall be ordered to return such land and demolish, within a given period of time, the houses newly built on such land, or such newly built houses shall be confiscated.

Article 46
Residents in non-agricultural households in cities or towns who unlawfully encroach upon land to build residences without approval or with fraudulently obtained approval shall be ordered to return such land and demolish, within a given period of time, the houses newly built on such land, or such newly built houses shall be confiscated.

State functionaries who, by abusing their authority, unlawfully encroach upon land to build residences without approval or with fraudulently obtained approval shall be ordered to return such land and demolish, within a given period of time, the houses newly built on such land, or such houses shall be confiscated, and administrative penalty shall be imposed upon the functionaries either by the units to which they belong or by offices at a higher level.

Article 47
Anyone who unlawfully transfers land through buying, selling or other means shall have his or her illegal proceeds confiscated and shall be ordered to demolish, within a given period of time, any structures or other installations newly erected on such land, or such structures or installations shall be confiscated, and the party concerned may be fined; administrative penalty shall be given to the person who bears the main responsibility either by the unit to which he belongs or by an office at a higher level.

Article 48
In case that a unit or individual without authority to approve requisition or use of land unlawfully approves occupation of land, or if he or she unlawfully approves occupation of land by overstepping his or her authority of approval, the documents of such approval shall be void and an administrative penalty shall be given the person who bears the main responsibility in such a unit or individual who has unlawfully approved occupation of land, either by the unit to which the person belongs or by offices at a higher level. Anyone who takes bribes shall be investigated for criminal responsibility in accordance with relevant provisions of the Criminal Law. Land occupied through unlawful approval shall be handled as a case of unlawful encroachment of land.

Article 49
Units at higher levels or other units that unlawfully seize land compensation and resettlement subsidies paid to the units whose land has been requisitioned shall be ordered to return such funds and make compensation, and they may be fined concurrently, administrative penalty shall be given to those who bear the main responsibility either by the units to which they belong or by offices at a higher level. Unlawful seizures by individuals shall be handled as a case of graft.

Article 50
Whoever makes temporary use of land in accordance with Article 33 of this Law and fails to return the land after the term for such use expires and whoever refuses to surrender land after the right to the use of it has been withdrawn in accordance with Article 19 of this Law shall be ordered to return the land and shall be fined concurrently.

Article 51
Whoever, in violation of the law, excavates earth or sand from or quarries or mines on cropland, therefore seriously damaging the cultivation conditions, or, in developing land, causes soil desertification, soil salinization or soil erosion, shall be ordered to make rectification within a definite period of time and may be fined concurrently.

Article 52
Administrative penalties prescribed in this Law shall be decided by land administration departments of local people's governments at or above the county level; administrative penalty stipulated in Article 45 of this Law may be decided by the people's governments at the township level. If the party concerned refuses to accept an administrative penalty, the party may initiate legal proceedings to a people's court within 15 days of receiving the notification on the decision regarding the penalty. If the party neither initiates legal proceedings nor complies with the penalty within that period, the unit that has made the decision of administrative penalty shall apply to the people's court for a compulsory enforcement.

Units or individuals that are under the punishment of demolishing, within a definite period of time, any new structures or other installations must stop construction immediately. For those who carry on construction, the unit that made the decision shall have the authority to stop it. Whoever rejects or hinders the performance of duties according to law by land administration personnel shall be punished in accordance with the relevant provisions of the Regulations on Administrative Penalties for Public Security.

Article 53
The land administration department of the local people's government at or above the county level shall order anyone who has infringed upon others' ownership of land and right to the use of land to stop the infringement and pay compensation for the losses caused; If a party refuses to accept the order, it may file suit in a people's court within 30 days after receiving notification of the order. The party infringed on may also file lawsuit directly in the people's court.

Article 54
In the course of changing ownership of land or the right to its use or solving disputes concerning ownership of land or the right to its use, anyone who offers or takes bribes, extorts money, commits embezzlement or theft of State or collective property, or incites the masses to disorderly conduct obstruction of State construction, if a crime is constituted, shall be investigated for criminal responsibility in accordance with relevant provisions of the Criminal Law.

Chapter VII Supplementary Provisions

Article 55
Administration measures for the land used by Chinese-foreign equity joint ventures, Chinese-foreign contractual joint ventures and foreign-capital enterprises shall be made separately by the State Council.

Article 56
The land administration department under the State Council shall formulate rules for implementation of this Law, which shall be put into force after being submitted to and approved by the State Council.

The standing committees of the people's congresses of provinces, autonomous regions and municipalities directly under the Central Government shall formulate measures for implementation of this Law.

Article 57
This Law shall go into effect on January 1, 1987. The Regulations on the Administration of Land Used by Villages and Towns for House Construction, promulgated on February 13, 1982 by the State Council, and the Regulations on the Requisition of Land for State Construction, promulgated on May 14, 1982 by the State Council, shall be invalidated simultaneously.

中华人民共和国土地管理法
 

(1986年6月25日第六届全国人民代表大会常务委员会第十六次会议通过,根据1988年12月29日第七届全国人民代表大会常务委员会第五次会议《关于修改〈中华人民共和国土地管理法〉的决定》修正,1998年8月29日第九届全国人民代表大会常务委员会第四次会议修订)
  
  中华人民共和国主席令
  
  第八号
  
  《中华人民共和国土地管理法》已由中华人民共和国第九届全国人民代表大会常务委员会第四次会议于1998年8月29日修订通过,现将修订后的《中华人民共和国土地管理法》公布,自1999年1月1日起施行。
  
  中华人民共和国主席  江泽民
  
   1998年8月29日
  
   
  
  目 录
  
  第一章 总 则
   第二章 土地的所有权和使用权
   第三章 土地利用总体规划
   第四章 耕地保护
  
  第五章 建设用地
   第六章 监督检查
   第七章 法律责任
   第八章 附  则
  
  
  第一章 总 则
  
  第一条 为了加强土地管理,维护土地的社会主义公有制,保护、开发土地资源,合理利用土地,切实保护耕地,促进社会经济的可持续发展,根据宪法,制定本法。
  
  第二条 中华人民共和国实行土地的社会主义公有制,即全民所有制和劳动群众集体所有制。
  
  全民所有,即国家所有土地的所有权由国务院代表国家行使。
  
  任何单位和个人不得侵占、买卖或者以其他形式非法转让土地。土地使用权可以依法转让。
  
  国家为公共利益的需要,可以依法对集体所有的土地实行征用。
  
  国家依法实行国有土地有偿使用制度。但是,国家在法律规定的范围内划拨国有土地使用权的除外。
  
  第三条 十分珍惜、合理利用土地和切实保护耕地是我国的基本国策。各级人民政府应当采取措施,全面规划,严格管理,保护、开发土地资源,制止非法占用土地的行为。
  
  第四条 国家实行土地用途管制制度。
  
  国家编制土地利用总体规划,规定土地用途,将土地分为农用地、建设用地和未利用地。严格限制农用地转为建设用地,控制建设用地总量,对耕地实行特殊保护。
  
  前款所称农用地是指直接用于农业生产的土地,包括耕地、林地、草地、农田水利用地、养殖水面等;建设用地是指建造建筑物、构筑物的土地,包括城乡住宅和公共设施用地、工矿用地、交通水利设施用地、旅游用地、军事设施用地等;未利用地是指农用地和建设用地以外的土地。
  
  使用土地的单位和个人必须严格按照土地利用总体规划确定的用途使用土地。
  
  第五条 国务院土地行政主管部门统一负责全国土地的管理和监督工作。
  
  县级以上地方人民政府土地行政主管部门的设置及其职责,由省、自治区、直辖市人民政府根据国务院有关规定确定。
  
  第六条 任何单位和个人都有遵守土地管理法律、法规的义务,并有权对违反土地管理法律、法规的行为提出检举和控告。
  
  第七条 在保护和开发土地资源、合理利用土地以及进行有关的科学研究等方面成绩显著的单位和个人,由人民政府给予奖励。
  
  第二章 土地的所有权和使用权
  
  第八条 城市市区的土地属于国家所有。
  
  农村和城市郊区的土地,除由法律规定属于国家所有的以外,属于农民集体所有;宅基地和自留地、自留山,属于农民集体所有。
  
  第九条 国有土地和农民集体所有的土地,可以依法确定给单位或者个人使用。使用土地的单位和个人,有保护、管理和合理利用土地的义务。
  
  第十条 农民集体所有的土地依法属于村农民集体所有的,由村集体经济组织或者村民委员会经营、管理;已经分别属于村内两个以上农村集体经济组织的农民集体所有的,由村内各该农村集体经济组织或者村民小组经营、管理;已经属于乡(镇)农民集体所有的,由乡(镇)农村集体经济组织经营、管理。
  
  第十一条 农民集体所有的土地,由县级人民政府登记造册,核发证书,确认所有权。
  
  农民集体所有的土地依法用于非农业建设的,由县级人民政府登记造册,核发证书,确认建设用地使用权。
  
  单位和个人依法使用的国有土地,由县级以上人民政府登记造册,核发证书,确认使用权;其中,中央国家机关使用的国有土地的具体登记发证机关,由国务院确定。
  
  确认林地、草原的所有权或者使用权,确认水面、滩涂的养殖使用权,分别依照《中华人民共和国森林法》、《中华人民共和国草原法》和《中华人民共和国渔业法》的有关规定办理。
  
  第十二条 依法改变土地权属和用途的,应当办理土地变更登记手续。
  
  第十三条 依法登记的土地的所有权和使用权受法律保护,任何单位和个人不得侵犯。
  
  第十四条 农民集体所有的土地由本集体经济组织的成员承包经营,从事种植业、林业、畜牧业、渔业生产。土地承包经营期限为三十年。发包方和承包方应当订立承包合同,约定双方的权利和义务。承包经营土地的农民有保护和按照承包合同约定的用途合理利用土地的义务。农民的土地承包经营权受法律保护。
  
  在土地承包经营期限内,对个别承包经营者之间承包的土地进行适当调整的,必须经村民会议三分之二以上成员或者三分之二以上村民代表的同意,并报乡(镇)人民政府和县级人民政府农业行政主管部门批准。
  
  第十五条 国有土地可以由单位或者个人承包经营,从事种植业、林业、畜牧业、渔业生产。农民集体所有的土地,可以由本集体经济组织以外的单位或者个人承包经营,从事种植业、林业、畜牧业、渔业生产。发包方和承包方应当订立承包合同,约定双方的权利和义务。土地承包经营的期限由承包合同约定。承包经营土地的单位和个人,有保护和按照承包合同约定的用途合理利用土地的义务。
  
  农民集体所有的土地由本集体经济组织以外的单位或者个人承包经营的,必须经村民会议三分之二以上成员或者三分之二以上村民代表的同意,并报乡(镇)人民政府批准。
  
  第十六条 土地所有权和使用权争议,由当事人协商解决;协商不成的,由人民政府处理。
  
  单位之间的争议,由县级以上人民政府处理;个人之间、个人与单位之间的争议,由乡级人民政府或者县级以上人民政府处理。
  
  当事人对有关人民政府的处理决定不服的,可以自接到处理决定通知之日起三十日内,向人民法院起诉。
  
  在土地所有权和使用权争议解决前,任何一方不得改变土地利用现状。
  
  第三章 土地利用总体规划
  
  第十七条 各级人民政府应当依据国民经济和社会发展规划、国土整治和资源环境保护的要求、土地供给能力以及各项建设对土地的需求,组织编制土地利用总体规划。
  
  土地利用总体规划的规划期限由国务院规定。
  
  第十八条 下级土地利用总体规划应当依据上一级土地利用总体规划编制。
  
  地方各级人民政府编制的土地利用总体规划中的建设用地总量不得超过上一级土地利用总体规划确定的控制指标,耕地保有量不得低于上一级土地利用总体规划确定的控制指标。
  
  省、自治区、直辖市人民政府编制的土地利用总体规划,应当确保本行政区域内耕地总量不减少。
  
  第十九条 土地利用总体规划按照下列原则编制:
  
  (一)严格保护基本农田,控制非农业建设占用农用地;
  
  (二)提高土地利用率;
  
  (三)统筹安排各类、各区域用地;
  
  (四)保护和改善生态环境,保障土地的可持续利用;
  
  (五)占用耕地与开发复垦耕地相平衡。
  
  第二十条 县级土地利用总体规划应当划分土地利用区,明确土地用途。
  
  乡(镇)土地利用总体规划应当划分土地利用区,根据土地使用条件,确定每一块土地的用途,并予以公告。
  
  第二十一条 土地利用总体规划实行分级审批。
  
  省、自治区、直辖市的土地利用总体规划,报国务院批准。
  
  省、自治区人民政府所在地的市、人口在一百万以上的城市以及国务院指定的城市的土地利用总体规划,经省、自治区人民政府审查同意后,报国务院批准。
  
  本条第二款、第三款规定以外的土地利用总体规划,逐级上报省、自治区、直辖市人民政府批准;其中,乡(镇)土地利用总体规划可以由省级人民政府授权的设区的市、自治州人民政府批准。
  
  土地利用总体规划一经批准,必须严格执行。
  
  第二十二条 城市建设用地规模应当符合国家规定的标准,充分利用现有建设用地,不占或者尽量少占农用地。
  
  城市总体规划、村庄和集镇规划,应当与土地利用总体规划相衔接,城市总体规划、村庄和集镇规划中建设用地规模不得超过土地利用总体规划确定的城市和村庄、集镇建设用地规模。
  
  在城市规划区内、村庄和集镇规划区内,城市和村庄、集镇建设用地应当符合城市规划、村庄和集镇规划。
  
  第二十三条 江河、湖泊综合治理和开发利用规划,应当与土地利用总体规划相衔接。在江河、湖泊、水库的管理和保护范围以及蓄洪滞洪区内,土地利用应当符合江河、湖泊综合治理和开发利用规划,符合河道、湖泊行洪、蓄洪和输水的要求。
  
  第二十四条 各级人民政府应当加强土地利用计划管理,实行建设用地总量控制。
  
  土地利用年度计划,根据国民经济和社会发展计划、国家产业政策、土地利用总体规划以及建设用地和土地利用的实际状况编制。土地利用年度计划的编制审批程序与土地利用总体规划的编制审批程序相同,一经审批下达,必须严格执行。
  
  第二十五条 省、自治区、直辖市人民政府应当将土地利用年度计划的执行情况列为国民经济和社会发展计划执行情况的内容,向同级人民代表大会报告。
  
  第二十六条 经批准的土地利用总体规划的修改,须经原批准机关批准;未经批准,不得改变土地利用总体规划确定的土地用途。
  
  经国务院批准的大型能源、交通、水利等基础设施建设用地,需要改变土地利用总体规划的,根据国务院的批准文件修改土地利用总体规划。
  
  经省、自治区、直辖市人民政府批准的能源、交通、水利等基础设施建设用地,需要改变土地利用总体规划的,属于省级人民政府土地利用总体规划批准权限内的,根据省级人民政府的批准文件修改土地利用总体规划。
  
  第二十七条 国家建立土地调查制度。
  
  县级以上人民政府土地行政主管部门会同同级有关部门进行土地调查。土地所有者或者使用者应当配合调查,并提供有关资料。
  
  第二十八条 县级以上人民政府土地行政主管部门会同同级有关部门根据土地调查成果、规划土地用途和国家制定的统一标准,评定土地等级。
  
  第二十九条 国家建立土地统计制度。
  
  县级以上人民政府土地行政主管部门和同级统计部门共同制定统计调查方案,依法进行土地统计,定期发布土地统计资料。土地所有者或者使用者应当提供有关资料,不得虚报、瞒报、拒报、迟报。
  
  土地行政主管部门和统计部门共同发布的土地面积统计资料是各级人民政府编制土地利用总体规划的依据。
  
  第三十条 国家建立全国土地管理信息系统,对土地利用状况进行动态监测。
  
  第四章 耕地保护
  
  第三十一条 国家保护耕地,严格控制耕地转为非耕地。
  
  国家实行占用耕地补偿制度。非农业建设经批准占用耕地的,按照"占多少,垦多少"的原则,由占用耕地的单位负责开垦与所占用耕地的数量和质量相当的耕地;没有条件开垦或者开垦的耕地不符合要求的,应当按照省、自治区、直辖市的规定缴纳耕地开垦费,专款用于开垦新的耕地。
  
  省、自治区、直辖市人民政府应当制定开垦耕地计划,监督占用耕地的单位按照计划开垦耕地或者按照计划组织开垦耕地,并进行验收。
  
  第三十二条 县级以上地方人民政府可以要求占用耕地的单位将所占用耕地耕作层的土壤用于新开垦耕地、劣质地或者其他耕地的土壤改良。
  
  第三十三条 省、自治区、直辖市人民政府应当严格执行土地利用总体规划和土地利用年度计划,采取措施,确保本行政区域内耕地总量不减少;耕地总量减少的,由国务院责令在规定期限内组织开垦与所减少耕地的数量与质量相当的耕地,并由国务院土地行政主管部门会同农业行政主管部门验收。个别省、直辖市确因土地后备资源匮乏,新增建设用地后,新开垦耕地的数量不足以补偿所占用耕地的数量的,必须报经国务院批准减免本行政区域内开垦耕地的数量,进行易地开垦。
  
  第三十四条 国家实行基本农田保护制度。下列耕地应当根据土地利用总体规划划入基本农田保护区,严格管理:
  
  (一)经国务院有关主管部门或者县级以上地方人民政府批准确定的粮、棉、油生产基地内的耕地;
  
  (二)有良好的水利与水土保持设施的耕地,正在实施改造计划以及可以改造的中、低产田;
  
  (三)蔬菜生产基地;
  
  (四)农业科研、教学试验田;
  
  (五)国务院规定应当划入基本农田保护区的其他耕地。
  
  各省、自治区、直辖市划定的基本农田应当占本行政区域内耕地的百分之八十以上。
  
  基本农田保护区以乡(镇)为单位进行划区定界,由县级人民政府土地行政主管部门会同同级农业行政主管部门组织实施。
  
  第三十五条 各级人民政府应当采取措施,维护排灌工程设施,改良土壤,提高地力,防止土地荒漠化、盐渍化、水土流失和污染土地。
  
  第三十六条 非农业建设必须节约使用土地,可以利用荒地的,不得占用耕地;可以利用劣地的,不得占用好地。
  
  禁止占用耕地建窑、建坟或者擅自在耕地上建房、挖砂、采石、采矿、取土等。
  
  禁止占用基本农田发展林果业和挖塘养鱼。
  
  第三十七条 禁止任何单位和个人闲置、荒芜耕地。已经办理审批手续的非农业建设占用耕地,一年内不用而又可以耕种并收获的,应当由原耕种该幅耕地的集体或者个人恢复耕种,也可以由用地单位组织耕种;一年以上未动工建设的,应当按照省、自治区、直辖市的规定缴纳闲置费;连续二年未使用的,经原批准机关批准,由县级以上人民政府无偿收回用地单位的土地使用权;该幅土地原为农民集体所有的,应当交由原农村集体经济组织恢复耕种。
  
  在城市规划区范围内,以出让方式取得土地使用权进行房地产开发的闲置土地,依照《中华人民共和国城市房地产管理法》的有关规定办理。
  
  承包经营耕地的单位或者个人连续二年弃耕抛荒的,原发包单位应当终止承包合同,收回发包的耕地。
  
  第三十八条 国家鼓励单位和个人按照土地利用总体规划,在保护和改善生态环境、防止水土流失和土地荒漠化的前提下,开发未利用的土地;适宜开发为农用地的,应当优先开发成农用地。
  
  国家依法保护开发者的合法权益。
  
  第三十九条 开垦未利用的土地,必须经过科学论证和评估,在土地利用总体规划划定的可开垦的区域内,经依法批准后进行。禁止毁坏森林、草原开垦耕地,禁止围湖造田和侵占江河滩地。
  
  根据土地利用总体规划,对破坏生态环境开垦、围垦的土地,有计划有步骤地退耕还林、还牧、还湖。
  
  第四十条 开发未确定使用权的国有荒山、荒地、荒滩从事种植业、林业、畜牧业、渔业生产的,经县级以上人民政府依法批准,可以确定给开发单位或者个人长期使用。
  
  第四十一条 国家鼓励土地整理。县、乡(镇)人民政府应当组织农村集体经济组织,按照土地利用总体规划,对田、水、路、林、村综合整治,提高耕地质量,增加有效耕地面积,改善农业生产条件和生态环境。
  
  地方各级人民政府应当采取措施,改造中、低产田,整治闲散地和废弃地。
  
  第四十二条 因挖损、塌陷、压占等造成土地破坏,用地单位和个人应当按照国家有关规定负责复垦;没有条件复垦或者复垦不符合要求的,应当缴纳土地复垦费,专项用于土地复垦。复垦的土地应当优先用于农业。
  
  第五章 建设用地
  
  第四十三条 任何单位和个人进行建设,需要使用土地的,必须依法申请使用国有土地;但是,兴办乡镇企业和村民建设住宅经依法批准使用本集体经济组织农民集体所有的土地的,或者乡(镇)村公共设施和公益事业建设经依法批准使用农民集体所有的土地的除外。
  
  前款所称依法申请使用的国有土地包括国家所有的土地和国家征用的原属于农民集体所有的土地。
  
  第四十四条 建设占用土地,涉及农用地转为建设用地的,应当办理农用地转用审批手续。
  
  省、自治区、直辖市人民政府批准的道路、管线工程和大型基础设施建设项目、国务院批准的建设项目占用土地,涉及农用地转为建设用地的,由国务院批准。
  
  在土地利用总体规划确定的城市和村庄、集镇建设用地规模范围内,为实施该规划而将农用地转为建设用地的,按土地利用年度计划分批次由原批准土地利用总体规划的机关批准。
  
  在已批准的农用地转用范围内,具体建设项目用地可以由市、县人民政府批准。
  
  本条第二款、第三款规定以外的建设项目占用土地,涉及农用地转为建设用地的,由省、自治区、直辖市人民政府批准。
  
  第四十五条 征用下列土地的,由国务院批准:
  
  (一)基本农田;
  
  (二)基本农田以外的耕地超过三十五公顷的;
  
  (三)其他土地超过七十公顷的。
  
  征用前款规定以外的土地的,由省、自治区、直辖市人民政府批准,并报国务院备案。
  
  征用农用地的,应当依照本法第四十四条的规定先行办理农用地转用审批。其中,经国务院批准农用地转用的,同时办理征地审批手续,不再另行办理征地审批;经省、自治区、直辖市人民政府在征地批准权限内批准农用地转用的,同时办理征地审批手续,不再另行办理征地审批,超过征地批准权限的,应当依照本条第一款的规定另行办理征地审批。
  
  第四十六条 国家征用土地的,依照法定程序批准后,由县级以上地方人民政府予以公告并组织实施。
  
  被征用土地的所有权人、使用权人应当在公告规定期限内,持土地权属证书到当地人民政府土地行政主管部门办理征地补偿登记。
  
  第四十七条 征用土地的,按照被征用土地的原用途给予补偿。
  
  征用耕地的补偿费用包括土地补偿费、安置补助费以及地上附着物和青苗的补偿费。征用耕地的土地补偿费,为该耕地被征用前三年平均年产值的六至十倍。征用耕地的安置补助费,按照需要安置的农业人口数计算。需要安置的农业人口数,按照被征用的耕地数量除以征地前被征用单位平均每人占有耕地的数量计算。每一个需要安置的农业人口的安置补助费标准,为该耕地被征用前三年平均年产值的四至六倍。但是,每公顷被征用耕地的安置补助费,最高不得超过被征用前三年平均年产值的十五倍。
  
  征用其他土地的土地补偿费和安置补助费标准,由省、自治区、直辖市参照征用耕地的土地补偿费和安置补助费的标准规定。
  
  被征用土地上的附着物和青苗的补偿标准,由省、自治区、直辖市规定。
  
  征用城市郊区的菜地,用地单位应当按照国家有关规定缴纳新菜地开发建设基金。
  
  依照本条第二款的规定支付土地补偿费和安置补助费,尚不能使需要安置的农民保持原有生活水平的,经省、自治区、直辖市人民政府批准,可以增加安置补助费。但是,土地补偿费和安置补助费的总和不得超过土地被征用前三年平均年产值的三十倍。
  
  国务院根据社会、经济发展水平,在特殊情况下,可以提高征用耕地的土地补偿费和安置补助费的标准。
  
  第四十八条 征地补偿安置方案确定后,有关地方人民政府应当公告,并听取被征地的农村集体经济组织和农民的意见。
  
  第四十九条 被征地的农村集体经济组织应当将征用土地的补偿费用的收支状况向本集体经济组织的成员公布,接受监督。
  
  禁止侵占、挪用被征用土地单位的征地补偿费用和其他有关费用。
  
  第五十条 地方各级人民政府应当支持被征地的农村集体经济组织和农民从事开发经营,兴办企业。
  
  第五十一条 大中型水利、水电工程建设征用土地的补偿费标准和移民安置办法,由国务院另行规定。
  
  第五十二条 建设项目可行性研究论证时,土地行政主管部门可以根据土地利用总体规划、土地利用年度计划和建设用地标准,对建设用地有关事项进行审查,并提出意见。
  
  第五十三条 经批准的建设项目需要使用国有建设用地的,建设单位应当持法律、行政法规规定的有关文件,向有批准权的县级以上人民政府土地行政主管部门提出建设用地申请,经土地行政主管部门审查,报本级人民政府批准。
  
  第五十四条 建设单位使用国有土地,应当以出让等有偿使用方式取得;但是,下列建设用地,经县级以上人民政府依法批准,可以以划拨方式取得:
  
  (一)国家机关用地和军事用地;
  
  (二)城市基础设施用地和公益事业用地;
  
  (三)国家重点扶持的能源、交通、水利等基础设施用地;
  
  (四)法律、行政法规规定的其他用地。
  
  第五十五条 以出让等有偿使用方式取得国有土地使用权的建设单位,按照国务院规定的标准和办法,缴纳土地使用权出让金等土地有偿使用费和其他费用后,方可使用土地。
  
  自本法施行之日起,新增建设用地的土地有偿使用费,百分之三十上缴中央财政,百分之七十留给有关地方人民政府,都专项用于耕地开发。
  
  第五十六条 建设单位使用国有土地的,应当按照土地使用权出让等有偿使用合同的约定或者土地使用权划拨批准文件的规定使用土地;确需改变该幅土地建设用途的,应当经有关人民政府土地行政主管部门同意,报原批准用地的人民政府批准。其中,在城市规划区内改变土地用途的,在报批前,应当先经有关城市规划行政主管部门同意。
  
  第五十七条 建设项目施工和地质勘查需要临时使用国有土地或者农民集体所有的土地的,由县级以上人民政府土地行政主管部门批准。其中,在城市规划区内的临时用地,在报批前,应当先经有关城市规划行政主管部门同意。土地使用者应当根据土地权属,与有关土地行政主管部门或者农村集体经济组织、村民委员会签订临时使用土地合同,并按照合同的约定支付临时使用土地补偿费。
  
  临时使用土地的使用者应当按照临时使用土地合同约定的用途使用土地,并不得修建永久性建筑物。
  
  临时使用土地期限一般不超过二年。
  
  第五十八条 有下列情形之一的,由有关人民政府土地行政主管部门报经原批准用地的人民政府或者有批准权的人民政府批准,可以收回国有土地使用权:
  
  (一)为公共利益需要使用土地的;
  
  (二)为实施城市规划进行旧城区改建,需要调整使用土地的;
  
  (三)土地出让等有偿使用合同约定的使用期限届满,土地使用者未申请续期或者申请续期未获批准的;
  
  (四)因单位撤销、迁移等原因,停止使用原划拨的国有土地的;
  
  (五)公路、铁路、机场、矿场等经核准报废的。
  
  依照前款第(一)项、第(二)项的规定收回国有土地使用权的,对土地使用权人应当给予适当补偿。
  
  第五十九条 乡镇企业、乡(镇)村公共设施、公益事业、农村村民住宅等乡(镇)村建设,应当按照村庄和集镇规划,合理布局,综合开发,配套建设;建设用地,应当符合乡(镇)土地利用总体规划和土地利用年度计划,并依照本法第四十四条、第六十条、第六十一条、第六十二条的规定办理审批手续。
  
  第六十条 农村集体经济组织使用乡(镇)土地利用总体规划确定的建设用地兴办企业或者与其他单位、个人以土地使用权入股、联营等形式共同举办企业的,应当持有关批准文件,向县级以上地方人民政府土地行政主管部门提出申请,按照省、自治区、直辖市规定的批准权限,由县级以上地方人民政府批准;其中,涉及占用农用地的,依照本法第四十四条的规定办理审批手续。
  
  按照前款规定兴办企业的建设用地,必须严格控制。省、自治区、直辖市可以按照乡镇企业的不同行业和经营规模,分别规定用地标准。
  
  第六十一条 乡(镇)村公共设施、公益事业建设,需要使用土地的,经乡(镇)人民政府审核,向县级以上地方人民政府土地行政主管部门提出申请,按照省、自治区、直辖市规定的批准权限,由县级以上地方人民政府批准;其中,涉及占用农用地的,依照本法第四十四条的规定办理审批手续。
  
  第六十二条 农村村民一户只能拥有一处宅基地,其宅基地的面积不得超过省、自治区、直辖市规定的标准。
  
  农村村民建住宅,应当符合乡(镇)土地利用总体规划,并尽量使用原有的宅基地和村内空闲地。
  
  农村村民住宅用地,经乡(镇)人民政府审核,由县级人民政府批准;其中,涉及占用农用地的,依照本法第四十四条的规定办理审批手续。
  
  农村村民出卖、出租住房后,再申请宅基地的,不予批准。
  
  第六十三条 农民集体所有的土地的使用权不得出让、转让或者出租用于非农业建设;但是,符合土地利用总体规划并依法取得建设用地的企业,因破产、兼并等情形致使土地使用权依法发生转移的除外。
  
  第六十四条 在土地利用总体规划制定前已建的不符合土地利用总体规划确定的用途的建筑物、构筑物,不得重建、扩建。
  
  第六十五条 有下列情形之一的,农村集体经济组织报经原批准用地的人民政府