杨宁 发表于 2020-6-13 12:47:02

北京房屋“五不租”规定的法律分析-王光良

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<P class=MsoNormal style="TEXT-ALIGN: center" align=center><FONT size=3><B style="mso-bidi-font-weight: normal"><SPAN style="FONT-SIZE: 14pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">北京房屋“五不租”规定的法律分析</SPAN></B><B style="mso-bidi-font-weight: normal"><SPAN lang=EN-US style="FONT-SIZE: 14pt">*<?xml:namespace prefix = o ns = "urn:schemas-microsoft-com:office:office" /><o:p></o:p></SPAN></B></FONT></P>
<P class=MsoNormal style="TEXT-ALIGN: center" align=center><FONT size=3><B style="mso-bidi-font-weight: normal"><SPAN lang=EN-US style="FONT-SIZE: 14pt"><SPAN style="mso-spacerun: yes">&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp; </SPAN></SPAN></B><B style="mso-bidi-font-weight: normal"><SPAN style="FONT-SIZE: 14pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">王光良</SPAN></B><B style="mso-bidi-font-weight: normal"><SPAN lang=EN-US style="FONT-SIZE: 14pt"><o:p></o:p></SPAN></B></FONT></P>
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<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">近日,北京警方出台的房屋“五不租”规定,引起广泛争议。该规定要求出租人不得将房屋出租给无合法有效证件的人员,从事非法经营活动人员,从事非法宗教活动的人员,所租房屋用于非法生产、储存、经营易燃、易爆等危险违禁物品的人员,违背生活作息规律、有利用所租房屋进行违法犯罪活动嫌疑的人员。违反“五不租”禁令将被最高处以月租金</SPAN><SPAN lang=EN-US>10</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">倍的罚款,或</SPAN><SPAN lang=EN-US>5</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">日以下拘留。</SPAN></FONT></P>
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<P class=MsoNormal><FONT size=3><SPAN lang=EN-US><SPAN style="mso-spacerun: yes">&nbsp;&nbsp;&nbsp; </SPAN></SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">“五不租”禁令经媒体报道后,立即引起了民众的强烈反响,媒体也纷纷发表评论。归纳起来,各方的批评集中在如下几个方面:五不租侵犯了房屋租赁双方的正当权益,插手了不该插手的事务</SPAN></FONT><A title="" style="mso-endnote-id: edn1" href="file:///C:/Documents%20and%20Settings/Administrator/桌面/北京房屋“五不租”的法律分析.htm#_edn1" name=_ednref1><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10pt"><SPAN style="mso-special-character: footnote"><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10pt; FONT-FAMILY: 'Times New Roman'; mso-fareast-font-family: 宋体; mso-font-kerning: 1.0pt; mso-ansi-language: EN-US; mso-fareast-language: ZH-CN; mso-bidi-language: AR-SA"><FONT color=#800080 size=3></FONT></SPAN></SPAN></SPAN></SPAN></SPAN></A><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>;五不租为保一方平安,不给“问题人”栖息之地,迫使他们离开暂住城市(北京市忆通律师事务所刘晓原律师);五不租只考虑了行政机关利益,没有考虑给群众带来的负面影响</FONT></SPAN><A title="" style="mso-endnote-id: edn2" href="file:///C:/Documents%20and%20Settings/Administrator/桌面/北京房屋“五不租”的法律分析.htm#_edn2" name=_ednref2><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10pt"><SPAN style="mso-special-character: footnote"><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10pt; FONT-FAMILY: 'Times New Roman'; mso-fareast-font-family: 宋体; mso-font-kerning: 1.0pt; mso-ansi-language: EN-US; mso-fareast-language: ZH-CN; mso-bidi-language: AR-SA"><FONT color=#800080 size=3></FONT></SPAN></SPAN></SPAN></SPAN></SPAN></A><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">;</SPAN><SPAN lang=EN-US style="COLOR: black; FONT-FAMILY: 宋体; mso-bidi-font-size: 10.5pt; mso-font-kerning: 0pt; mso-bidi-font-family: 宋体">“</SPAN><SPAN style="COLOR: black; FONT-FAMILY: 宋体; mso-bidi-font-size: 10.5pt; mso-font-kerning: 0pt; mso-bidi-font-family: 宋体">五不租<SPAN lang=EN-US>”</SPAN>把责任和成本推给了行政相对人</SPAN></FONT><A title="" style="mso-endnote-id: edn3" href="file:///C:/Documents%20and%20Settings/Administrator/桌面/北京房屋“五不租”的法律分析.htm#_edn3" name=_ednref3><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10pt"><SPAN style="mso-special-character: footnote"><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10pt; FONT-FAMILY: 'Times New Roman'; mso-fareast-font-family: 宋体; mso-font-kerning: 1.0pt; mso-ansi-language: EN-US; mso-fareast-language: ZH-CN; mso-bidi-language: AR-SA"><FONT color=#800080 size=3></FONT></SPAN></SPAN></SPAN></SPAN></SPAN></A><SPAN style="COLOR: black; FONT-FAMILY: 宋体; mso-bidi-font-size: 10.5pt; mso-font-kerning: 0pt; mso-bidi-font-family: 宋体"><FONT size=3>。</FONT></SPAN></P>
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<P class=MsoNormal><FONT size=3><SPAN lang=EN-US><SPAN style="mso-spacerun: yes">&nbsp;&nbsp;&nbsp; </SPAN></SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">租房五不准的规定有悖常理,属于明显不合理的行政命令,上引的各方评论也从不同角度指出了问题。为了更进一步弄清这条规定的真面目,本文将从“五不租”规定的出台背景,该规定的法律性质,它的实施能否达到预期目的,可能带来什么样的影响,出租人和承租人应如何对待“五不租”等几方面分析,并在最后简要阐述对行政权力行使的看法。</SPAN></FONT></P>
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<P class=MsoNormal style="TEXT-INDENT: 20.65pt; mso-char-indent-count: 1.96"><B style="mso-bidi-font-weight: normal"><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">一、“五不租”禁令的出台背景</SPAN><SPAN lang=EN-US><o:p></o:p></SPAN></FONT></B></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN lang=EN-US><SPAN style="mso-spacerun: yes"><FONT size=3>&nbsp; </FONT></SPAN></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">流动人口——城市治安管理的心腹之患。北京市作为一个国际化大都市,流动人口多,人群结构复杂,许多没有常住户口的外来人口和进城务工人员处于社会的底层,这部分人群为城市治安和刑事犯罪控制带来了极大压力。流动人口违法犯罪率高,是许多城市的普遍现象。据《新京报》报道,</SPAN><SPAN lang=EN-US>2005</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年到</SPAN><SPAN lang=EN-US>2006</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年</SPAN><SPAN lang=EN-US>4</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">月间,北京被提起公诉的被告人中,流动人口占到</SPAN><SPAN lang=EN-US>67.2%</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">。两个月后,中共十七大即将召开;</SPAN><SPAN lang=EN-US>2008</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年奥运会举办日期也日益临近,为了迎接和谐盛会,创办和谐奥运,北京市警方面临的治安压力自然也日益增大。</SPAN></FONT></P>
<P class=MsoNormal style="tab-stops: 233.25pt"><SPAN lang=EN-US><SPAN style="mso-tab-count: 1"><FONT size=3>&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp;&nbsp; </FONT></SPAN></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>群众路线——我们的传统与偏好。流动人口日常管理工作主要依靠基层派出所,而后者却普遍存在警力不足的问题。虽然近几年北京连年大幅扩张警察队伍,但这一矛盾并没有得到根本改善。我们的地方政府有一个不成文的传统,就是在社会治理中发动群众,走群众路线。对于社会治安管理工作来说,这一传统表现尤为突出。公安系统里,在正规编制之外,还有大量合同制警察,基层派出所下面则发展治安联防队员,甚至居委会的大爷大妈也成为治安队伍中的一员,此外,数量更多的保安队伍,也承担了大量的治安工作;在城管部门,城管队员长期不懈进行街头清理工作的同时,招收了大量协管员参与城市管理。协警和协管一直都是治安管理和城市管理中的重要力量。</FONT></SPAN></P>
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<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">如此看来,北京警方出台“五不租”规定,有着一举两得的双重考虑。该规定加重出租人责任,迫其监视</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-bidi-font-size: 10.5pt; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">、</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">检查</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-bidi-font-size: 10.5pt; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">、</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">报告承租人的违法活动,出租人不知不觉中也成为基层协警力量。另外,规定通过规定苛刻的出租条件,实际上是决意要将所有对公共安全构成威胁的人都赶出北京城,至于这些人是不是真的威胁了公共安全,并不是警方做出行政规定时的考虑因素。稳定压倒一切的思想占据了上风。</SPAN></FONT></P>
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<P class=MsoNormal><B style="mso-bidi-font-weight: normal"><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">二、“五不租”禁令于法无据</SPAN><SPAN lang=EN-US><o:p></o:p></SPAN></FONT></B></P>
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<P class=MsoNormal><FONT size=3><SPAN lang=EN-US><SPAN style="mso-spacerun: yes">&nbsp;&nbsp;&nbsp; </SPAN></SPAN><B style="mso-bidi-font-weight: normal"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">(一)“五不租”是什么性质的文件</SPAN><SPAN lang=EN-US><o:p></o:p></SPAN></B></FONT></P>
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<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">从行政法的角度讲,行政机关制定行政规则的行为被称为抽象行政行为,其中包括国家行政机关制定法规、规章和有普遍约束力的决定、命令等。“五不租”规定是北京市公安局人口管理处起草、以北京市公安局的名义发布的规范性文件。</SPAN><SPAN lang=EN-US>2000</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年公布的《最高人民法院关于执行</SPAN><SPAN lang=EN-US>&lt;</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">中华人民共和国行政诉讼法</SPAN><SPAN lang=EN-US>&gt;</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">若干问题的解释》第三条规定,所谓具有普遍约束力的决定、命令,是指行政机关针对不特定对象发布的能反复适用的行政规范性文件。由此可见,“五不租”规定是针对北京市房屋出租人这一不特定对象发布的可以反复适用的行政规范性文件,属于抽象行政行为。</SPAN></FONT></P>
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<P class=MsoNormal style="TEXT-INDENT: 20.65pt; mso-char-indent-count: 1.96"><B style="mso-bidi-font-weight: normal"><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">(二)“五不租”禁令不能作为行政处罚的法律依据</SPAN><SPAN lang=EN-US><o:p></o:p></SPAN></FONT></B></P>
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<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>“五不租”属于规章以下的行政规范性文件,是为执行法律法规和规章而发布的行政命令。那么,这一禁令的上位法有哪些呢?虽然北京警方仅列举了五种不准出租的情形,但其中涉及到的上位法规定却很多,比较重要的有:《治安管理处罚法》,《刑法》,各种规定了非法经营活动的法律法规规章,各种规定了危险物品管理的法律法规规章,《宗教事务条例》,《租赁房屋治安管理规定》,《北京市外地来京人员租赁房屋治安管理规定》等等。其中与“五不租”规定联系最为紧密的是下面几条。</FONT></SPAN></P>
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<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>《中华人民共和国治安管理处罚法》第五十七条:房屋出租人将房屋出租给无身份证件的人居住的,或者不按规定登记承租人姓名、身份证件种类和号码的,处两百元以上五百元以下罚款。</FONT></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>房屋出租人明知承租人利用出租房屋进行违法活动,不向公安机关报告的,处两百元以上五百元以下罚款;情节严重的,处五日以下拘留,可以并处五百元以下罚款。</FONT></SPAN></P>
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<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">《租赁房屋治安管理规定》(公安部</SPAN><?xml:namespace prefix = st1 ns = "urn:schemas-microsoft-com:office:smarttags" /><st1:chsdate IsROCDate="False" IsLunarDate="False" Day="6" Month="3" Year="1995" w:st="on"><SPAN lang=EN-US>1995</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年</SPAN><SPAN lang=EN-US>3</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">月</SPAN><SPAN lang=EN-US>6</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">日</SPAN></st1:chsdate><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">颁布并于同日实施)第九条:违反本规定的行为,由县(市)公安局或者城市公安分局予以处罚:</SPAN></FONT></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>(二)出租人将房屋出租给无合法有效证件承租人的,处以警告、月租金三倍以下的罚款;</FONT></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>(三)出租人不履行治安责任,发现承租人利用所租房屋进行违法犯罪活动或者有违法犯罪嫌疑不制止、不报告,或者发生案件、治安灾害事故的,责令停止出租,可以并处月租金十倍以下的罚款;</FONT></SPAN></P>
<P class=MsoNormal><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">《北京市外地来京人员租赁房屋治安管理规定》(北京市政府制定发布)十一条:出租人违反本规定的</SPAN><SPAN lang=EN-US>,</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">由公安机关按下列规定处罚:</SPAN></FONT></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><FONT size=3><SPAN lang=EN-US>(</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">一</SPAN><SPAN lang=EN-US>)</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">未办理《房屋租赁安全合格证》擅自向外地来京人员出租房屋</SPAN><SPAN lang=EN-US>,</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">责令限期改正</SPAN><SPAN lang=EN-US>,</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">并没收违法所得</SPAN><SPAN lang=EN-US>;</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">情节严重的</SPAN><SPAN lang=EN-US>,</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">并可处以月租金</SPAN><SPAN lang=EN-US>5</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">倍以下的罚款。</SPAN></FONT></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><FONT size=3><SPAN lang=EN-US>(</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">二</SPAN><SPAN lang=EN-US>)</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">出租人将房屋出租给无《暂住证》的外地来京人员的</SPAN><SPAN lang=EN-US>,</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">责令解除租赁关系</SPAN><SPAN lang=EN-US>,</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">没收非法所得</SPAN><SPAN lang=EN-US>,</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">并可处以房屋月租金</SPAN><SPAN lang=EN-US>5</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">倍以下的罚款</SPAN><SPAN lang=EN-US>;</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">情节严重的</SPAN><SPAN lang=EN-US>,</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">吊销其《房屋租赁安全合格证》。</SPAN></FONT></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><FONT size=3><SPAN lang=EN-US>(</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">三</SPAN><SPAN lang=EN-US>)</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">对不履行治安责任保证书规定的治安责任的</SPAN><SPAN lang=EN-US>,</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">予以警告</SPAN><SPAN lang=EN-US>,</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">并可处以月租金</SPAN><SPAN lang=EN-US>10</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">倍以下的罚款</SPAN><SPAN lang=EN-US>;</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">情节严重的</SPAN><SPAN lang=EN-US>,</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">吊销其《房屋租赁安全合格证》。</SPAN></FONT></P>
<P class=MsoNormal><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21.75pt"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>对这三个文件,首先需要弄清楚它们之间的关系。《治安管理处罚法》作为上一位阶的法律,其效力高于《租赁房屋治安管理规定》,也高于北京市政府颁布的规章,如果后两者的规定与前者冲突,根据从高从新从特的法律适用原则,行政机关在做出行政行为时必须适用上位法。</FONT></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21.75pt"><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21.75pt"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>仔细对照上述条文发现,《租赁房屋治安管理规定》第九条第一款第二项第三项的规定和《治安管理处罚法》第五十六条的规定有重合的地方。同样是将房屋出租给无身份证件的人员,前者规定了警告、月租金三倍以下的罚款,后者则规定了两百元以上五百元以下罚款。根据从高从新从特的适用原则,这个时候,如果月租金的三倍超过五百元,公安机关处罚的上限最多只能为五百元。同理,其它几条规定的处理也应符合这一原则。</FONT></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21.75pt"><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21.75pt"><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">需要特别注意的是《北京市外地来京人员租赁房屋治安管理规定》第十一条第一款第三项的规定。治安责任保证书的性质如何界定?保证书规定的责任是什么责任?对出租人的约束力如何?我们说,治安责任保证书只是表明,出租人愿意承担法律有明文规定的责任</SPAN><SPAN lang=EN-US>—</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">主要规定在《房屋租赁治安管理规定》第七条。如果保证书规定了法律没有要求的额外责任,出租人则无需为自己的保证负责,行政机关更不能仅依据治安责任保证书处罚行政相对人。也即出租人仅承担知情不举的行政法责任。至于出租人因纵容、帮助、隐匿违法犯罪分子而受到的处罚,已经跟他不尽出租人监督义务没有关系,是另外的违法行为,应按照违法犯罪的共同犯、窝藏犯等进行处理。</SPAN></FONT></P>
<P class=MsoNormal style="TEXT-INDENT: 21.75pt"><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21.75pt"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>通过以上对比分析可知,北京市警方出台的“五不租”将最高罚款额设定为月租金的十倍,这样的规定是没有任何法律依据的。</FONT></SPAN></P>
<P class=MsoNormal><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>“五不租”不能作为行政处罚的直接依据。从形式上看,该文件规定了假定条件、行为模式和法律后果(给予罚款、拘留等处罚),符合法律规则的一般逻辑结构;但因为文件本身无权设立任何形式的处罚,它不过是把《治安管理处罚法》《房屋租赁治安管理规定》等法律法规、规章中的有关条文加以汇总,然后以公安局发布的公告或命令的形式,告诉房主哪些租房行为是不合法的、违反规定情形将会被处以什么类型的处罚。就是说,“五不租”规定不能作为行政处罚的法律依据,警察在执行任务中发现有违反该规定的行为,只能适用《行政处罚法》、《治安管理处罚法》《租赁房屋治安管理规定》等有关法律法规和规章做出处理。</FONT></SPAN></P>
<P class=MsoNormal><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 15.5pt; mso-char-indent-count: 1.47"><B style="mso-bidi-font-weight: normal"><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">(三)“五不租”规定既不合理也不合法</SPAN><SPAN lang=EN-US><o:p></o:p></SPAN></FONT></B></P>
<P class=MsoNormal><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>治安管理责任的转嫁和租赁合同的扭曲。在“五不租”规定中,存在着治安管理部门、出租人、承租人三个主体之间的法律关系。出租人与承租人之间形成的是房屋租赁合同关系,按照合同法的有关规定,出租人所负的义务是保持租赁物符合双方约定的用途,承租人则要按照约定的用途使用租赁物。此时,如果双方违反合同约定,则要承担民法上的违约责任或侵权责任,任何一方在权利受到侵害时,均有请求对方承担赔偿损失的权利。二者之间的地位是完全平等的。但由于“五不租”规定的约束,双方的法律行为的内容由对“物”的效力转向了对“人”的效力。治安管理部门整治房屋租赁市场,查处承租人(主要是流动人口)的违法犯罪活动,这是它的法定职责,本来与出租人没有直接关系。可是,行政机关采取的措施却是为出租人设定监视检查义务,将本属于自己的责任转嫁给出租人,这是公权力对私权利的非法干涉,它扭曲了租赁合同双方的民事主体关系。</FONT></SPAN></P>
<P class=MsoNormal><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>出租人不该承担的义务和不能拥有的权力。承租人违反治安管理和刑事法律,只能对承租人处罚。如果出租人明知承租人进行违法犯罪活动而参与、纵容、隐瞒、提供便利的,此时处罚出租人是因为他实施了违法行为,《治安管理处罚法》中的“明知而不举报”的行为是一种消极状态,没有赋予出租人主动干预承租人的权力。“五不租”的规定让人生出一种错觉,以为行政机关委托出租人承担了一定的公共管理职能,但事实上并非如此,查处违法行为仍然是行政机关和司法机关的职责,出租人既没有这个权力,也没有这个义务。过分关心承租人生活,甚至可能触犯他人的隐私权。公安机关不能逼着出租人违法。</FONT></SPAN></P>
<P class=MsoNormal><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>行政机关制定行政命令,加重行政相对人的责任,免除自己的义务,违反了政府只能作为社会公众代理人、并在委托人授权范围内行使权力的宪政原则,也违反了有关行政处罚设定权限的法律规定。因此“五不租”禁令直接规定处罚种类、加重出租人义务没有法律根据,自然也是违法的。</FONT></SPAN></P>
<P class=MsoNormal><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 20.65pt; mso-char-indent-count: 1.96"><B style="mso-bidi-font-weight: normal"><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">三、“五不租”禁令的实施及影响</SPAN><SPAN lang=EN-US><o:p></o:p></SPAN></FONT></B></P>
<P class=MsoNormal><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>“五不租”的严格规定无法从根本上改变房屋租赁治安管理状况。出租人和承租人之间的合同履行要由双方协商解决,协商不成还有合同法、民法通则等民事法律规范去调整。行政法规、命令迫使出租人承担不应承担的义务,侵害了房屋所有人对物的处分权。出租人对承租人的选择取决于市场供求关系,当房屋供应大于租房需求时,房东则将放松对房客的挑选,反之则会对房客的来源严格挑选。既然没有过多警力去直接查处承租人的违法犯罪活动,警方也同样难以抽出警力去查处房东是否有纵容房客的行为。因为从行政法上讲,行政机关要处罚房东,就要找出证据证明房东有明知违法行为而不报、参与纵容违法活动的事实,这显然比直接查处犯罪活动还要难。它的唯一作用大概就是对出租人的威慑和胁迫了。</FONT></SPAN></P>
<P class=MsoNormal><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>出租人不可能完成的任务。要分辨承租人是否违反了“五不租”禁令,出租人必须知道承租人是不是在进行非法经营活动、非法宗教活动,是不是有将所租房屋用于非法生产、储存、经营易燃、易爆等危险违禁物品的情形,甚至,对一些生活作息不规律的人员,还要弄明白他们是否具有违法犯罪嫌疑。但是我们知道,身份证件可以造假;非法经营活动和违法犯罪活动更是形形色色、种类繁多,既有偷盗扒窃,也有杀人放火,既有网络赌博,也有色情交易,无照经营的小商小贩也算是非法经营;何谓非法宗教活动,我们的宗教法规都没有说清楚,普通民众分辨起来恐怕难度不小。“五不租”禁令要求出租人既要有侦查能力,又要具备法律知识,而且,大部分出租人并不与承租人住在一起,却需时时用心留意承租人的举动,这实在是一个艰巨的任务。</FONT></SPAN></P>
<P class=MsoNormal><SPAN lang=EN-US><SPAN style="mso-spacerun: yes"><FONT size=3>&nbsp;&nbsp;&nbsp;&nbsp; </FONT></SPAN></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>“五不租”的实施可能导致行政机关权力滥用,这将严重破坏执法机关依法行政的形象,损害政府的公信力;规定逼迫出租人监视干预承租人生活,又会加重不同人群之间的对立和分化,不仅不能化解矛盾,反而可能激起更多的抵制。下面试以“从事非法宗教活动的人员不租”这一条为例详细分析。</FONT></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21.1pt; mso-char-indent-count: 2.0"><B style="mso-bidi-font-weight: normal"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>四、怎么理解“从事非法宗教活动的人员不租”</FONT></SPAN></B></P>
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<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>禁令中的“非法宗教活动”是指信教人员未经登记进行家庭聚会的行为,不包括利用封建迷信、会道门、邪教组织</FONT></SPAN><A title="" style="mso-endnote-id: edn4" href="file:///C:/Documents%20and%20Settings/Administrator/桌面/北京房屋“五不租”的法律分析.htm#_edn4" name=_ednref4><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10pt"><SPAN style="mso-special-character: footnote"><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10pt; FONT-FAMILY: 'Times New Roman'; mso-fareast-font-family: 宋体; mso-font-kerning: 1.0pt; mso-ansi-language: EN-US; mso-fareast-language: ZH-CN; mso-bidi-language: AR-SA"><FONT color=#800080 size=3></FONT></SPAN></SPAN></SPAN></SPAN></SPAN></A><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">等从事的违法犯罪活动。我国的公开文件中提到非法宗教活动,一般均指未经审批从事聚会、印刷宗教刊物等行为,封建迷信、会道门、邪教犯罪都是另行规定的。“五不租”规定“从事非法宗教活动的人员不租”,出租人要达到治安部门制定的这一标准,就要首先弄明白何为非法宗教活动。这一问题需要我们慎重辨析。</SPAN><SPAN lang=EN-US style="FONT-FAMILY: 宋体; mso-bidi-font-size: 10.5pt"><o:p></o:p></SPAN></FONT></P>
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<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">未经登记进行家庭聚会是否就是非法宗教活动?我国《宪法》第三十六条规定:“国家保护正常的宗教活动。任何人不得利用宗教进行破坏社会秩序、损害公民身体健康、妨碍国家教育制度的活动。”从这一规定分析,宗教信徒按照宗教教义参加的各种读经、敬拜、祷告、聚会等活动,只要不违反下款“利用宗教进行破坏社会秩序、损害公民身体健康、妨碍国家教育制度”的规定,就应当认为是正常的宗教活动。</SPAN><st1:chsdate IsROCDate="False" IsLunarDate="False" Day="16" Month="10" Year="1997" w:st="on"><SPAN lang=EN-US>1997</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年</SPAN><SPAN lang=EN-US>10</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">月</SPAN><SPAN lang=EN-US>16</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">日</SPAN></st1:chsdate><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">,国务院发表的《中国的宗教信仰自由状况》白皮书第三条规定:“对基督徒按照宗教习惯,在自己家里举行以亲友为主参加的祷告、读经等宗教活动(中国基督教习惯称之为‘家庭聚会’),不要求登记。”无论是从宗教信仰的基本常识判断,还是从宪法的规定分析,信徒之间平日的家庭聚会都是正常合法的宗教活动,是教义规定信徒必须遵守的教诲,不然,宗教信仰自由并不是只有内心相信的自由,理所当然包括参加宗教活动的自由。任何剥夺限制宗教信徒按照教义进行正常活动的规定都是对于宗教信仰自由的剥夺,也是违反宪法规定的。</SPAN></FONT></P>
<P class=MsoNormal><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>但现实情况显然并非如此,我国《宗教事务条例》第四十三条第二款规定:“非宗教团体、非宗教活动场所组织、举行宗教活动,接受宗教性捐献的,由宗教事务部门责令停止活动;有违法所得的,没收违法所得……”现实中,宗教事务部门和公安部门干预家庭聚会,认定非法宗教活动,所依据的就是这一备受争议和批评的行政规定。</FONT></SPAN></P>
<P class=MsoNormal><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>其实,行政部门对宗教活动的干预,更多的还是受到我国宗教政策的影响。政府担心未经登记的宗教活动会脱离监控,不利于行政机关掌握公民的信仰状况,可能会对主流意识形态产生冲击;此外政府还担心家庭教会被国外势力渗透利用,从而威胁到政治稳定;这些因素都决定了行政机关对家庭聚会的本能排斥。但即使是主流意识形态也承认,宗教信仰属于思想范畴问题,对待公民的思想认识问题,只能采取说服教育的方法去解决,绝不能强迫命令,粗暴压制。这就是我国宪法明确规定宗教信仰自由的政策依据。行政机关在处理与宗教有关的行为时,也应当遵守这一原则,只要宗教信徒的宗教活动没有超出宪法规定的范围,没有进行破坏公共秩序损害公民身体健康等违法行为,行政机关就不得随意干涉。否则就是违法行政。</FONT></SPAN></P>
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<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">“五不租”规定的精神与宗教事务管理的基本原则不符。</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-bidi-font-size: 10.5pt">从管理者角度看,管理的权力并非自生的,而是来自被管理者的依法授权,因此,管理不是发号施令,而是一种责任和义务;在方式上不是居高临下式的,而是平等的;……,宗教事务管理更多地应通过立法和政策的引导性来进行……</SPAN></FONT><A title="" style="mso-endnote-id: edn5" href="file:///C:/Documents%20and%20Settings/Administrator/桌面/北京房屋“五不租”的法律分析.htm#_edn5" name=_ednref5><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10pt"><SPAN style="mso-special-character: footnote"><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10pt; FONT-FAMILY: 'Times New Roman'; mso-fareast-font-family: 宋体; mso-font-kerning: 1.0pt; mso-ansi-language: EN-US; mso-fareast-language: ZH-CN; mso-bidi-language: AR-SA"><FONT color=#800080 size=3></FONT></SPAN></SPAN></SPAN></SPAN></SPAN></A><SPAN style="FONT-FAMILY: 宋体; mso-bidi-font-size: 10.5pt"><FONT size=3>。在处理与宗教有关的事务时,行政机关应克制全面“控制”宗教活动的冲动,让“上帝的归上帝,凯撒的归凯撒”。<SPAN lang=EN-US><o:p></o:p></SPAN></FONT></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN lang=EN-US><o:p><FONT size=3>&nbsp;</FONT></o:p></SPAN></P>
<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>“五不租”禁令随意加重出租人责任,迫使其干涉“非法宗教活动”也即家庭聚会活动,不仅侵犯了公民的宗教信仰自由,而且容易造成信教群众和不信教群众的对立,加深两者之间的矛盾,使得本就应该谨慎应对的宗教问题变得更加复杂。这样的规定只会适得其反,无法达到预期效果。</FONT></SPAN></P>
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<P class=MsoNormal style="TEXT-INDENT: 20.65pt; mso-char-indent-count: 1.96"><B style="mso-bidi-font-weight: normal"><FONT size=3><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">四、结语:我们要从“五不租”中学什么</SPAN><SPAN lang=EN-US><o:p></o:p></SPAN></FONT></B></P>
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<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>对出租人和承租人来讲,我们应该将“五不租”的出台看作一个契机,利用这一机会争取权利。对待一个不合法的行政规定,应该通过合法途径积极抵制,将它的影响降到最低。第一,利用大众媒体和公共信息平台发表意见,通过舆论向行政机关施压,促使其改正不合理的决定;第二,向发布“五不租”规定的上一级行政机关和各级人大反映,要求撤销不合法的行政命令;第三,在行政机关根据该规定做出行政行为时,注意保护自己的合法权利,并向执法人员提出申诉意见,如果合法权益被侵害,则应通过行政复议和行政诉讼等手段维护自身权利。只有越来越多的人不断诉求,才能逐步改变行政机关执法的随意性,促使他们增强依法行政的观念。</FONT></SPAN></P>
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<P class=MsoNormal style="TEXT-INDENT: 21pt; mso-char-indent-count: 2.0"><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>从观念的转变角度看,农民工和城市原住民,信仰宗教的公民和不信仰宗教的公民,早出晚归的人和通宵工作的人,他们一样享有法律规定的各项权利,在法律面前一律平等。公民处理民事法律行为遵循意思自治的原则,对自有财产享有自由处分权利。公共行政对个人自由干预的正当理由和原则界限是公共利益,而公共利益是法律上一个不确定的概念,对公共利益的认定又是一个主观认识问题,公共行政部门必须在个人权利与公共利益之间谨慎地求得平衡,片面强调国家治理的实效很容易误入歧途。而两者平衡的特点不是真理性,而是程序性;不是绝对性,而是相对性;不是静止的,而是动态的</FONT></SPAN><A title="" style="mso-endnote-id: edn6" href="file:///C:/Documents%20and%20Settings/Administrator/桌面/北京房屋“五不租”的法律分析.htm#_edn6" name=_ednref6><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10pt"><SPAN style="mso-special-character: footnote"><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10pt; FONT-FAMILY: 'Times New Roman'; mso-fareast-font-family: 宋体; mso-font-kerning: 1.0pt; mso-ansi-language: EN-US; mso-fareast-language: ZH-CN; mso-bidi-language: AR-SA"><FONT color=#800080 size=3></FONT></SPAN></SPAN></SPAN></SPAN></SPAN></A><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>。“五不租”禁令将城市治安管理绝对化,静止化,且未遵守正当程序,其后果就是导致权力滥用,损害相对人合法权益,降低行政权力行使的权威。最终结果将得不偿失。</FONT></SPAN></P>
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<P class=MsoNormal><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'"><FONT size=3>参考资料</FONT></SPAN></P>
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<P class=MsoNormal><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt">1</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">、艾才琴:</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt"> “</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">‘五不租’方便了管理难为了百姓”,《检察日报》</SPAN><st1:chsdate IsROCDate="False" IsLunarDate="False" Day="10" Month="9" Year="2007" w:st="on"><SPAN lang=EN-US style="FONT-SIZE: 9pt">2007</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">9</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">月</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">10</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">日</SPAN></st1:chsdate><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">。</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt"><o:p></o:p></SPAN></FONT></P>
<P class=MsoNormal><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt">2</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">、易家言:</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">“</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">‘五不租’实质是推卸责任</SPAN><SPAN style="FONT-SIZE: 9pt"> </SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">违背作息规律没原罪”,《中国青年报》</SPAN><st1:chsdate IsROCDate="False" IsLunarDate="False" Day="7" Month="9" Year="2007" w:st="on"><SPAN lang=EN-US style="FONT-SIZE: 9pt">2007</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">9</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">月</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">7</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">日</SPAN></st1:chsdate><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">。</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt"><o:p></o:p></SPAN></FONT></P>
<P class=MsoNormal><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt">3</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">、周兼明:“政府与民众的契约关系”,《凤凰周刊》</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">2006</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年第</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">23</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">期。</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt"><o:p></o:p></SPAN></FONT></P>
<P class=MsoNormal><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt">4</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">、“大陆西部乡村‘邪教’调查”,《凤凰周刊》</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">2007</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年第</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">13</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">期。</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt"><o:p></o:p></SPAN></FONT></P>
<P class=MsoNormal><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt">5</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">、周兼明:“扶持正教</SPAN><SPAN style="FONT-SIZE: 9pt"> </SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">祛除邪教”,《凤凰周刊》</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">2007</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年第</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">13</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">期。</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt"><o:p></o:p></SPAN></FONT></P>
<P class=MsoNormal><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt">6</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">、章剑生:“论行政处罚中当事人之协助”,《华东政法学院学报》</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">2006</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年第</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">4</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">期。</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt"><o:p></o:p></SPAN></FONT></P>
<P class=MsoNormal><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt">7</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">、连</SPAN><SPAN style="FONT-SIZE: 9pt"> </SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">岳:“公权力要克制窥私欲”,《南方周末》</SPAN><st1:chsdate IsROCDate="False" IsLunarDate="False" Day="13" Month="9" Year="2007" w:st="on"><SPAN lang=EN-US style="FONT-SIZE: 9pt">2007</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">9</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">月</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">13</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">日</SPAN></st1:chsdate><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">。</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt"><o:p></o:p></SPAN></FONT></P>
<P class=MsoNormal><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt">8</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">、曹</SPAN><SPAN style="FONT-SIZE: 9pt"> </SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">林:“出台五不租没有考虑社会成本”,《东方早报》</SPAN><st1:chsdate IsROCDate="False" IsLunarDate="False" Day="7" Month="9" Year="2007" w:st="on"><SPAN lang=EN-US style="FONT-SIZE: 9pt">2007</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">9</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">月</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">7</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">日</SPAN></st1:chsdate><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">。</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt"><o:p></o:p></SPAN></FONT></P>
<P class=MsoNormal><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt">9</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">、陈瑞洪:《宪治与主权》,法律出版社</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">2007</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年版。</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt"><o:p></o:p></SPAN></FONT></P>
<P class=MsoNormal><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt">10</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">、卢</SPAN><SPAN style="FONT-SIZE: 9pt"> </SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">梭:《社会契约论》,何兆武译,商务印书馆</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">1982</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年版。</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt"><o:p></o:p></SPAN></FONT></P>
<P class=MsoNormal><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt">11</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">、</SPAN><SPAN style="FONT-SIZE: 9pt; COLOR: black; FONT-FAMILY: 宋体">魏德东:“媒体应慎言‘邪教’<SPAN lang=EN-US>”</SPAN>,中国民族宗教网。<SPAN lang=EN-US><o:p></o:p></SPAN></SPAN></FONT></P>
<P class=MsoNormal><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt; COLOR: black; FONT-FAMILY: 宋体">12</SPAN><SPAN style="FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">、</SPAN><SPAN style="FONT-SIZE: 9pt; COLOR: black; FONT-FAMILY: 宋体">张训谋:“各国政教关系和宗教事务管理模式初探”,普世社会科学研究网。</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt"><o:p></o:p></SPAN></FONT></P></DIV>
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<DIV id=edn1 style="mso-element: endnote">
<P class=MsoEndnoteText><A title="" style="mso-endnote-id: edn1" href="file:///C:/Documents%20and%20Settings/Administrator/桌面/北京房屋“五不租”的法律分析.htm#_ednref1" name=_edn1></A><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt">* </SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">感谢“盐光沙龙”对本文的主题策划、资料提供和批评指点,沙龙的伙伴们从社会控制理论、行政法、合同法等不同角度探讨了“五不租”规定,曹志先生为本文的写作提供了关键性思路,给予了诸多帮助。迦勒等几位好友也提出了很好的意见和建议,在此一并表示感谢。尽管如此,文中观点和失误之处还是由本人负责。</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt"><o:p></o:p></SPAN></FONT></P>
<P class=MsoEndnoteText><FONT size=3><SPAN class=MsoEndnoteReference><SPAN lang=EN-US><SPAN style="mso-special-character: footnote"><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10.5pt; FONT-FAMILY: 'Times New Roman'; mso-bidi-font-size: 12.0pt; mso-fareast-font-family: 宋体; mso-font-kerning: 1.0pt; mso-ansi-language: EN-US; mso-fareast-language: ZH-CN; mso-bidi-language: AR-SA"></SPAN></SPAN></SPAN></SPAN></SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt"> </SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">易家言:</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体">“</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体">‘</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">五不租’实质是推卸责任违背作息规律没原罪”,《中国青年报》</SPAN><st1:chsdate IsROCDate="False" IsLunarDate="False" Day="7" Month="9" Year="2007" w:st="on"><SPAN lang=EN-US style="FONT-SIZE: 9pt">2007</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">9</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">月</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">7</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">日</SPAN></st1:chsdate><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">。</SPAN></FONT></P></DIV>
<DIV id=edn2 style="mso-element: endnote">
<P class=MsoNormal><A title="" style="mso-endnote-id: edn2" href="file:///C:/Documents%20and%20Settings/Administrator/桌面/北京房屋“五不租”的法律分析.htm#_ednref2" name=_edn2><SPAN class=MsoEndnoteReference><SPAN lang=EN-US><SPAN style="mso-special-character: footnote"><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10.5pt; FONT-FAMILY: 'Times New Roman'; mso-bidi-font-size: 12.0pt; mso-fareast-font-family: 宋体; mso-font-kerning: 1.0pt; mso-ansi-language: EN-US; mso-fareast-language: ZH-CN; mso-bidi-language: AR-SA"><FONT color=#800080 size=3></FONT></SPAN></SPAN></SPAN></SPAN></SPAN></A><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt"> </SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">艾才琴:</SPAN><SPAN style="FONT-SIZE: 9pt"> </SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体">“</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">‘五不租’方便了管理难为了百姓”,《检察日报》</SPAN><st1:chsdate IsROCDate="False" IsLunarDate="False" Day="10" Month="9" Year="2007" w:st="on"><SPAN lang=EN-US style="FONT-SIZE: 9pt">2007</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">9</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">月</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">10</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">日</SPAN></st1:chsdate><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">。</SPAN></FONT></P></DIV>
<DIV id=edn3 style="mso-element: endnote">
<P class=MsoNormal><A title="" style="mso-endnote-id: edn3" href="file:///C:/Documents%20and%20Settings/Administrator/桌面/北京房屋“五不租”的法律分析.htm#_ednref3" name=_edn3><SPAN class=MsoEndnoteReference><SPAN lang=EN-US><SPAN style="mso-special-character: footnote"><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10.5pt; FONT-FAMILY: 'Times New Roman'; mso-bidi-font-size: 12.0pt; mso-fareast-font-family: 宋体; mso-font-kerning: 1.0pt; mso-ansi-language: EN-US; mso-fareast-language: ZH-CN; mso-bidi-language: AR-SA"><FONT color=#800080 size=3></FONT></SPAN></SPAN></SPAN></SPAN></SPAN></A><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt"> </SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">曹</SPAN><SPAN style="FONT-SIZE: 9pt"> </SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">林:“出台五不租没有考虑社会成本”,《东方早报》</SPAN><st1:chsdate IsROCDate="False" IsLunarDate="False" Day="7" Month="9" Year="2007" w:st="on"><SPAN lang=EN-US style="FONT-SIZE: 9pt">2007</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">9</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">月</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">7</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">日</SPAN></st1:chsdate><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">。</SPAN></FONT></P></DIV>
<DIV id=edn4 style="mso-element: endnote">
<P class=MsoNormal><A title="" style="mso-endnote-id: edn4" href="file:///C:/Documents%20and%20Settings/Administrator/桌面/北京房屋“五不租”的法律分析.htm#_ednref4" name=_edn4><SPAN class=MsoEndnoteReference><SPAN lang=EN-US><SPAN style="mso-special-character: footnote"><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10.5pt; FONT-FAMILY: 'Times New Roman'; mso-bidi-font-size: 12.0pt; mso-fareast-font-family: 宋体; mso-font-kerning: 1.0pt; mso-ansi-language: EN-US; mso-fareast-language: ZH-CN; mso-bidi-language: AR-SA"><FONT color=#800080 size=3></FONT></SPAN></SPAN></SPAN></SPAN></SPAN></A><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt; COLOR: black; FONT-FAMILY: 宋体"> “</SPAN><SPAN style="FONT-SIZE: 9pt; COLOR: black; FONT-FAMILY: 宋体">邪教<SPAN lang=EN-US>”</SPAN>作为一个概念,似乎被大多数宗教学家所排斥,不将其看作是宗教学的概念。</SPAN><SPAN style="FONT-SIZE: 9pt; COLOR: black; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">严格来说,</SPAN><SPAN style="FONT-SIZE: 9pt; COLOR: black; FONT-FAMILY: 宋体">邪教一词在使用上是有问题的。为引述法律条文之便,本文直接使用了邪教一词。参见魏德东文章:“媒体应慎言‘邪教’<SPAN lang=EN-US>”</SPAN>,中国民族宗教网。</SPAN></FONT></P></DIV>
<DIV id=edn5 style="mso-element: endnote">
<P class=MsoNormal><A title="" style="mso-endnote-id: edn5" href="file:///C:/Documents%20and%20Settings/Administrator/桌面/北京房屋“五不租”的法律分析.htm#_ednref5" name=_edn5><SPAN class=MsoEndnoteReference><SPAN lang=EN-US><SPAN style="mso-special-character: footnote"><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10.5pt; FONT-FAMILY: 'Times New Roman'; mso-bidi-font-size: 12.0pt; mso-fareast-font-family: 宋体; mso-font-kerning: 1.0pt; mso-ansi-language: EN-US; mso-fareast-language: ZH-CN; mso-bidi-language: AR-SA"><FONT color=#800080 size=3></FONT></SPAN></SPAN></SPAN></SPAN></SPAN></A><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt; COLOR: black; FONT-FAMILY: 宋体"> </SPAN><SPAN style="FONT-SIZE: 9pt; COLOR: black; FONT-FAMILY: 宋体">张训谋:“各国政教关系和宗教事务管理模式初探”,普世社会科学研究网。</SPAN></FONT></P></DIV>
<DIV id=edn6 style="mso-element: endnote">
<P class=MsoNormal><A title="" style="mso-endnote-id: edn6" href="file:///C:/Documents%20and%20Settings/Administrator/桌面/北京房屋“五不租”的法律分析.htm#_ednref6" name=_edn6><SPAN class=MsoEndnoteReference><SPAN lang=EN-US><SPAN style="mso-special-character: footnote"><SPAN class=MsoEndnoteReference><SPAN lang=EN-US style="FONT-SIZE: 10.5pt; FONT-FAMILY: 'Times New Roman'; mso-bidi-font-size: 12.0pt; mso-fareast-font-family: 宋体; mso-font-kerning: 1.0pt; mso-ansi-language: EN-US; mso-fareast-language: ZH-CN; mso-bidi-language: AR-SA"><FONT color=#800080 size=3></FONT></SPAN></SPAN></SPAN></SPAN></SPAN></A><FONT size=3><SPAN lang=EN-US style="FONT-SIZE: 9pt; COLOR: black; FONT-FAMILY: 宋体"> </SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">陈瑞洪:《宪治与主权》,法律出版社</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">2007</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">年版,第</SPAN><SPAN lang=EN-US style="FONT-SIZE: 9pt">263</SPAN><SPAN style="FONT-SIZE: 9pt; FONT-FAMILY: 宋体; mso-ascii-font-family: 'Times New Roman'; mso-hansi-font-family: 'Times New Roman'">页。</SPAN></FONT></P></DIV></DIV>

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