The Draft Constitution and Human Rights Protection in European Union
周大勇 (Zhou,Dayong)
1 the general introduction of the draft constitution in aspect of the human rights
2 short review of the human rights protection in European Union
3 the new points in aspect of human rights in the draft constitution
3.1 common values
3.2 incorporation of the Charter of fundamental rights
3.3 other changes could affect the human rights
4 arisen questions
4.1 the protection different from under the Convention
4.2 the two courts system and its application
5 conclusions in a historical view
1 general introduction of the draft constitution in aspect of the human rights
“Conscious that Europe is a continent that has brought forth civilization; That its inhabitants, arriving in successive waves from earliest times, have gradually developed the values underlying humanism: equality of persons, freedom, respect for reason” Extract from the preamble to the draft Constitution
In past 16 years, the European Union (EU hereafter) has marked itself through a series of changes. From The Single European Act, in which the Union committed itself to create a single market and at the same time establish on its territory the freedom of movement of people, goods, services as well as capital, to Maastricht Treaty, which brought the Union into reality and led to common foreign policy and cooperation in the area of justice and internal affairs as a higher level cooperation among Member States. Then the following Amsterdam (1997) and Nice (2001) Treaties, strengthened cooperation in foreign and security policy and placed Justice and Home Affairs matters and established the frame for the Union as a legitimate institution, in which people from different nations integrated in a large region would have common historical direction and splendid future before them. Just before the door of enlargement of the Union, it was argued that the Union has to improve democracy and transparency as well as efficiency, in order to outlines the EU’s purpose and competence clearly and streamline structures so as to prevent paralysis, therefore a new constitution for the Union is determined to replace the EU's series of key treaties in passed over the last 50 years as a single document .
Under leading of former French President and master draftsman Valéry Giscard d'Estaing, the European Convention set about its work of drafting the European Union's first ever full-fledged constitution. With the convention's work completed, the draft must now be finalized by an Intergovernmental Conference of European leaders that is expected to complete deliberations by the end of the 2003. As far as our topic is concerned, noticeably modifications come out in the constitution contract, first of all, the incorporation of the Charter of Fundamental Rights, which we will discuss later. In the beginning it is meaningful to consider the statues of the draft constitution in the progress course of the Union. The Union desires to bring peace and prosperity, to promote economic and social progress through continuously integrating market and expanding freedom under light of united institution and social systems . These goals, however, are the foundation of development and protection of human rights . That means, if we regard human rights as a series right which realized at first in peaceful and law-ruling society, then the Union has already kept on entrenching to appreciate these goal from beginning on, and now by means of perusing such goal in a larger region through enlargement, the EU’s influence extent to broader area and more people.
The draft constitution then in such context should be viewed as another historical phase in the process. Because the promoting of well-being and fortune of people depend not only on the development of economic situation and adding some single freedom clauses into the governmental documents, but also upon the entire politic system and background in which we live. Without governing based on democratic and effective institutional structure, and especially a ripe legislation and judiciary mechanism, the realization and protection of human rights could only be on the paper. This is also one of the motive caused the Declaration on the future of the European Union which committed the Union to becoming more democratic, more transparent and effective, in order to pave the way for a Constitution in response to the expectations of the people of Europe . In this perspective, one shall recognize the Constitution as a moving forward step of the whole EU institutionalization targeting its goal, so that to discuss the Constitution in connection with the human right protection, it is helpful to review the human rights protection in Europe and, especially in EU.
2 short review of the human rights protection in European Union
The protection of human rights has been internationally come to life in the Universal Declaration of Human Rights in 1948 (UDHR) with reorganization of disregard and contempt for human rights have resulted in barbarous acts which have outraged the conscience of mankind and respect for inherent dignity as well as the equal rights of all members of the human. This declaration states explicitly that the rights and freedoms of humans have to be guaranteed without distinction and destruction by any group, state or person. These principles were broadly accepted by European countries, considering the origin of the EU (EC) and the historical separation in Europe after WWII, we denote only the contracting countries of European Community.
For the Member States of EC, the Council of Europe has been up to now the most important instrument, which established in 1949 as a result of the Congress of Europe in The Hague , and took for the basic of the human rights protection. The Council accepted the principles of Universal Declaration of Human Rights and integrated it into The European Convention for the Protection of Human Rights (the Convention hereafter), which and its 12 Protocols turned out to be the significant resource for Human Rights protection in Europe. Because of the existence of the Convention, the other two organizations established in the same age aftermath of the Second World War, i.e. OEEC and the European Communities didn’t include relevant clauses for Human Rights protection into their founding treaties. Since it was agreed at that time, the Council of Europe would focus on the protection of human rights, fundamental freedoms and democratic values, whereas the OECD and the European Communities were to be concerned with the economic restoration of Europe. The reason of separate organizations was based on a view to avoiding economic excuses for future inhumanity. Another reason came from the thought, which believed that the process of economic integration set forth in the Community Treaties could not lead to a violation of human rights. Furthermore, the original Member States in the Treaty of Rome feared, that the inclusion of a "bill of rights" in the Treaty might have brought about an undesirable expansion of Community powers, since it could lead Community institutions to interpret their powers as extending to anything not explicitly prohibited by the enumerated guarantees.
Under the regime of Council of Europe, a lots of achievement of human rights improvement has been reached , yet along with the development and expansion of EU, another mechanism on protection of human rights which does not totally rely on the Council of Europe has derived out on one hand, on the other hand being lack of provisions ruling human rights protection in the Treaty establishing EC did not prevent the EC and the later European Union from providing care for the protection against the violations on human rights. Naturally, how could a swelling supranational organization as EC, which has been continually strengthening its power in all social aspects, does not involve in human rights issues especially when the consciousness of human rights nowadays become more significant both in international and national stages? Regarding to EU, The protection system has been formed in three aspects.
First of all, the legislation in the Member States of EU. Since there were no Member States of EU (EC) which accedes to the Community without being a member of the Council of Europe, and according to the Convention, it impose obligations on the Member States that they should ensure that the internal laws and practices comply with the human rights standards set out in the instruments. Very member states in EU have recognize the principles derived from the Convention and incorporated them somehow into national laws, most importantly, provided constitutive protection as the basic legal resource for human rights protection. For example in Germany, Basic Law (Grundgesetz) Art 1 to 19 deliver explicit provisions even beyond the Convention; the same case as Part VIII (§71-85) in Constitution of Denmark ; in Britain the Act of Human Rights came into force on 2 October 2000 steers extending a ways, in which the Convention can be used before domestic courts. Certainly, according to the classic human rights lessons, the basic protection of human rights could only be afforded at the national level through national legislation and excise of authoritative power.
Secondly, the institutions and legislation at the EU level acts also with high respect to the human rights protection. The EU has showed its commitment to human rights and fundamental freedoms and has explicitly confirmed the EU's attachment to fundamental social rights ever since its establishment.
The Amsterdam Treaty established procedures intended to secure their protection. It was ascertained, as a general principle, that the European Union should respect human rights and fundamental freedoms, upon which the Union is founded. For the first time a procedure is introduced, according to which severe and continuing violations of Fundamental Rights can lead to suspension of voting and other rights of a member state, if the Union determined the existence of a serious and persistent breach of these principles by that Member State. As to the Candidate countries, they should also respect these principles to join the Union. Furthermore, It has also given the European Court of Justice the power to ensure respect of fundamental rights and freedoms by the European institutions. In accordance with the inner requirement for the implementation of development cooperation operations, in order to reach objective of developing and consolidating democracy, EU also need its rule respecting for human rights. Such cases we have are for instance the EU Council’s regulation on human rights, Council Regulation (EC) No 975/199 and Council Regulation (EC) No 976/1999 for example, are aimed at providing technical and financial aid for operations to promote and protect of civil and political rights as well as economic, social and cultural rights etc.
Likewise, at their meeting in Cologne in June 1999, EU leaders declared that in respect to the current stage of progress of the European Union, the fundamental rights applicable at Union level should be pushed forward, namely be consolidated in a Charter and thereby made more evident. They argued, that the legal resources of human rights protection come from not only the European Convention of Human Right, but also from various international conventions drawn up by the Council of Europe as well as the United Nations and the International Labor Organization, they also include EU treaties themselves and from the case law of the European Court of Justice. As a result, a Charter of Fundamental Rights of the European Union (the Charter hereinafter) was sketch out, which highlighted the EU’s respect for human rights, for fundamental freedoms and for the principle of democracy through listing more rights a more precise definition of the common values comparing the early documents including the Convention. We will continue to concentrate on the Charter in point 3 since it has been integrated in the draft Constitution as an outstanding achievement.
Finally, the opinion and case-law of European Court of Justice (ECJ hereafter) also have immense impact on the establishment of the instrument of human rights protection within EU.
Although the jurisprudence developed by the ECJ recognizes the Convention as the standard-setter in cases in which the Court has to consider and decide a human rights issue, since there were no relevant legislation existed in the frame of the Community, the ECJ furnish itself power in this aspect by means of case-law. Earlier in 1974, the ECJ first made reference to the ECHR in the Nold judgment, in which the ECJ emphasized its commitment to fundamental human rights based on the constitutional traditions of the Member States’ fundamental rights form an integral part of the general principles of law which the Court enforces. In assuring the protection of such rights, the Court is required to base itself on the constitutional traditions common to the Member States and therefore could not allow measures, which are incompatible with the fundamental rights recognized and guaranteed by the constitutions of such States. The ECJ declared, that the international treaties on the protection of human rights in which the Member States have cooperated or to which they have adhered could also supply indications which may be taken into account within the framework of Community law.
That implied, even without clear regulations in the treaties, the remedy against violation on human rights could also be provided within the framework of the Community in respect for the common traditions applied to the Member States, and in connection with we have mentioned about the Member States’ above, the principles and resource applied to the Member States derived from the Council of Europe. Thus a EU standard could be established by transform a rating comparison of the members’ legal systems to the case-law in ECJ in respect for human rights.
呼和浩特市市辖区农村宅基地规划用地管理办法(试行)
内蒙古自治区呼和浩特市人民政府
关于印发《呼和浩特市市辖区农村宅基地规划用地管理办法(试行)》的通知
呼政发〔2005〕51号
呼政发〔2005〕51号
关于印发《呼和浩特市市辖区农村宅基地规划用地管理办法(试行)》的通知
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二○○五年六月二十七日
呼和浩特市市辖区农村宅基地规划和用地管理办法
(试行)
第一章 总 则
第一条为切实加强本市市辖区农村宅基地规划和用地管理，规范农村建设用地秩序，保护农村村民的合法权益，根据国家有关法律法规，结合本市实际，制定本办法。
第二条本办法所称农村宅基地是指农村村民取得合法手续用以建造住宅和其他生活用房的土地，包括住宅、其他附属设施和院落用地等。
第三条本办法适用于本市市辖区行政区域内农村宅基地的管理。
第四条市国土行政主管部门负责全市农村宅基地的管理监督工作。市规划、建设行政主管部门按照各自职权负责市区农村宅基地规划、建设的管理监督工作。区建设行政主管部门按照各自职权负责本辖区内农村宅基地建设的具体管理监督工作。市房产和民政等相关行政主管部门按照各自职责做好农村宅基地管理的相关工作。
第五条农村宅基地规划必须符合土地利用总体规划、城市总体规划以及村庄和集镇规划。
第六条市人民政府提倡并鼓励村民整体搬迁，集中建设住宅，营造良好居住环境。
第七条农村宅基地的使用应遵循节约和合理利用土地、切实保护耕地的原则，尽量利用荒废地和村内空闲地。
第八条农村村民一户只能拥有一处宅基地。
第九条农村村民宅基地的所有权属于集体，农村村民个人只有使用权，没有所有权。依法取得的宅基地使用权受法律保护。
第十条农村村民建设住宅，应当依法取得土地使用权。禁止非法占用土地建设住宅、其他附属设施和院落用地等。禁止买卖或者以其他方式非法转让农村宅基地。
第二章 规划管理
第十一条市国土行政主管部门依据土地利用总体规划，按照统筹安排城乡建设用地的总要求和控制增量、盘活存量、集约用地、保护耕地的总原则，合理确定小城镇和农村居民点的数量、布局、范围和用地规模，并结合本市实际，制定宅基地利用年度计划。宅基地利用年度计划须在每年年初下达并予以公告。
第十二条各区人民政府负责依据土地利用总体规划组织编制村镇建设详细规划，并报市规划行政主管部门依法批准。
第十三条重点控制范围（详见附则）内须按城市规划统一改造“城中村”，宅基地建设项目按城市建筑报批程序进行。村民和村民集体组织自行改造“城中村”，按城市社区规划建设。
第十四条重点控制范围以外至一般控制范围（详见附则）以内的农村村民使用宅基地，应向村民委员会提出申请，经村民委员会讨论通过，按行政村集中逐级报件，由乡（镇）人民政府、各区人民政府审核后，按批次报市规划行政主管部门审批，由各区人民政府组织实施。
第十五条一般控制范围以外的农村村民使用宅基地，应向村民委员会提出申请，经村民委员会讨论通过，乡（镇）人民政府审核，由各区人民政府按照市规划行政主管部门已批准的村镇建设详细规划组织实施。
第十六条重点控制范围和一般控制范围内宅基地面积不得超过204平方米，建筑容积率不得超过075；重点控制范围和一般控制范围外宅基地面积不得超过400平方米，建筑容积率不得超过04。
第十七条村镇建设详细规划的编制应广泛征求村民意见并向社会公布。
第三章 宅基地申请与审批
第十八条农村村民符合下列条件之一的，可以申请宅基地：
（一）农村村民户无宅基地的；
（二）外来人口落户，没有宅基地的；
（三）因发生或者防御自然灾害、实施城市村庄和集镇规划以及进行乡（镇）村公共设施和公益事业建设，需要搬迁的；
(四)农村村民户除身边留一子女外，其他成年子女确需另立门户而已有的宅基地低于分户标准的；
(五)其他有关规定。
第十九条 农村村民需要使用宅基地的，应当向村民委员会提出申请，由村民委员会公布并提交村民会议或者村民代表会议讨论。经讨论同意并公布30日后无异议的，按照规划管理的要求，依照本办法第十三条、第十四条和第十五条规定的有关程序办理。经批准的宅基地予以公布。审批过程中，乡（镇）国土部门应做到：
（一）受理宅基地申请后，要到实地审查申请人是否符合条件、拟用地是否符合规划；
（二）宅基地经依法批准后，要到实地丈量批放宅基地；
（三）村民生活用房建设中及建成后，要到实地检查是否按照批准的面积和要求使用土地。各级人民政府在宅基地审批过程中不得向农民收取新增建设用地有偿使用费。
第二十条城镇非农业户居民，不得申请农村宅基地。
第二十一条从外村迁入的村民，必须将原有宅基地退还，并办理土地使用证注销登记后，方可向迁入地申请宅基地。
第二十二条农村村民有下列情形之一的，不予批准使用宅基地：
（一）年龄未满十八周岁的；
（二）原有宅基地的面积已经达到规定标准或者能够解决分户需要的；
(三)宅基地面积虽低于规定标准，但住房长期空置的；
(四)户口已迁出不在当地居住的；
(五)出卖、出租或以其它形式非法转让房屋的；
(六)其它按法律、法规规定不应安排宅基地用地的。
第二十三条下列宅基地的使用权，由村民委员会向乡（镇）土地管理机构提出申请，经国土行政主管部门审查，由原批准机关批准后，可以收回：
（一）为实施城市村庄和集镇规划进行旧村改造需要调整的宅基地；
（二）为进行乡（镇）村公共设施和公益事业建设需要占用的宅基地；
（三）农村村民一户一宅之外的宅基地；
（四）农村“五保户”腾出的宅基地；
（五）自依法批准之日起，连续二年未按照批准的用途使用且未提前3个月书面提出延长申请的宅基地；
（六）市人民政府规定应当收回的其他宅基地。
由于前款第（一）项、第（二）项和第（三）项规定的原因收回宅基地使用权的，村民委员会应当根据地上附着物的评估价格对原宅基地使用权人给予补偿。 第二十四条凡合法使用的宅基地必须向国土行政主管部门申请登记并提供下列材料：
（一）土地登记申请书；
（二）户籍证明；
（三）土地权属证明；
（四）四邻具结证明；
（五）国土行政主管部门认为需要的其他材料。
第二十五条宅基地使用权依法发生变更，需办理变更登记。变更登记方法按照新增宅基地审批方式进行。
第二十六条宅基地被依法征用、收回的同时应申请办理宅基地使用权注销登记，注销土地证书。宅基地使用权人未按规定申请注销登记的，国土行政主管部门依照有关规定直接办理注销登记。
第二十七条市规划行政主管部门和市、区建设行政主管部门按照各自职权分工负责宅基地建设项目建设行为的管理与监督工作。
第二十八条农村村民危房翻建，由区建设行政主管部门鉴定后，区人民政府审批，必须原拆原建。
第四章 产权证申领
第二十九条各区农村房屋的权利人应当持有关文件到市房产行政主管部门申请房屋权属登记，领取房屋权属证书。
第三十条村民住宅进行翻建的，权利人应当在30日内持房屋权属证书、建设行政主管部门的相关批文到市房产行政主管部门申请变更登记。
第五章 附 则
第三十一条凡违反本办法规定擅自占用宅基地建设的房屋均为违法建筑。
第三十二条农村生产用房的审批程序和时限参照本办法执行。
第三十三条本办法涉及审批事项的审批时限，法律、法规有规定的，按照有关规定执行；法律、法规无规定的，审批时限为20日。
第三十四条本办法重点控制范围指东至哈拉沁沟、南至南三环、西至乌素图沟、北至呼包高速公路，约250平方公里的地区，含4镇、2乡、1个办事处（新城区：毫沁营镇；回民区：攸攸板镇；玉泉区：桃花乡、小黑河镇、西菜园办事处；赛罕区：西把栅乡、巧报镇），行政村（新城区：一家村、毫沁营村、南店村、麻花板村、三合村、府兴营村、代州营村、上新营村、下新营村、三卜树村；回民区：西龙王庙村、倘不浪村、什拉门更村、孔家营村、攸攸板村、刀刀板村、小府村、塔不板村、青山村、厂汉板村、四合兴村、东乌素图村、西乌素图村、一间房村；玉泉区：东源村、西源村、南源村、北源村、辛辛板村、南营子村、碱滩村、后八里村、前八里村、西水磨村、五里营村、南茶坊村、西瓦窑村、西二道村、当浪土牧村、章盖营村、小黑河村、南八里村、范家营村、东二道村、沟子板村、大库仑村、姜家营村；赛罕区：前巧报村、后巧报村、小台村、大台村、双树村、东瓦窑村、黑兰不塔村、如意和村、讨号板村、徐家沙梁村、小厂库伦村、帅家营村、东黑河村、小茂盛营村、东喇嘛营子村、西喇嘛营子村、正喇嘛营子村、保全庄村、格尔图村、西大黑河村、新营子村、太平营村、前白庙子村、后白庙子村、后不塔气村、辛家营村、西把栅村、东鼓楼村、西鼓楼村）。本办法一般控制范围指西至霍寨沟、南至大黑河、东至绕城高速公路东线、北至呼包高速公路，约为420平方公里的地区，含6镇、2乡、1个办事处（新城区：毫沁营镇；回民区：攸攸板镇；玉泉区：桃花乡、小黑河镇、西菜园办事处；赛罕区：西把栅乡、巧报镇、金河镇、巴彦镇），93个行政村（新城区：一家村、毫沁营村、南店村、麻花板村、三合村、府兴营村、代州营村、上新营村、下新营村、三卜树村、沙梁子村、塔利村；回民区：西龙王庙村、倘不浪村、什拉门更村、孔家营村、攸攸板村、刀刀板村、小府村、塔不板村、青山村、厂汉板村、四合兴村、东乌素图村、西乌素图村、一间房村、东棚子村；玉泉区：东源村、西源村、南源村、北源村、辛辛板村、南营子村、碱滩村、后八里村、前八里村、西水磨村、五里营村、南茶坊村、西瓦窑村、西二道村、当浪土牧村、章盖营村、小黑河村、南八里村、范家营村、东二道村、沟子板村、大库仑村、姜家营村、讨尔号村、东甲兰村、一间房村、班定营村、沙梁子村、新河营村、后本滩村、前桃花村、讨卜齐村、田家营村；赛罕区：前巧报村、后巧报村、小台村、大台村、双树村、东瓦窑村、黑兰不塔村、如意和村、讨号板村、徐家沙梁村、小厂库伦村、帅家营村、东黑河村、小茂盛营、东喇嘛营子村、西喇嘛营子村、正喇嘛营子村、保全庄村、后不塔气村、辛家营村、西把栅村、东鼓楼村、西鼓楼村、六犋牛村、东把栅村、合林村、大厂库伦村、前不塔气村、什兰岱村、黑土凹村、罗家营村、坝彦村、腾家营村）。注：一般控制范围不含以下属于重点控制范围内的行政村“格尔图村、西大黑河村、新营子村、太平营村、前白庙子村、后白庙子村”
第三十五条本办法由市人民政府法制机构负责解释。
第三十六条本办法自发布之日起施行。
抄送：市委办公厅、人大常委会办公厅、政协办公厅。
呼和浩特市人民政府办公厅2005年6月27日印发
租金计算（每平方米使用面积月租金标准）1、折旧费=平米造价×（1—残值率）/折旧年限×12×使用面积系数2、维修费=平米造价×80%/折旧年限×12×使用面积系数3、管理费=折旧费+维修费/1—10%×10%4、投资利息=平米造价+年末折旧费+残值/2×45‰×使用面积系数5、房产税=折旧费+维修费+管理费+投资利息/1—12%×12%6、土地使用费按实际发生计7、保险费按实际发生计8、利润各地根据具体情况定租金测算楼房（造价580元/平方米）平房（造价320元/平方米）1、拆旧费071元/平方米051元/平方米2、维修费0.58元/平方米0.43元/平方米3、管理费0.14元/平方米0.10元/平方米廉租租金（2）+（3）=0.72元/平方米②+③=0.53元/平方米