You are on page 1of 8

論文摘要

政治制度的變遷對于一個社會而言無疑具有極其重大的影響。但如何描述、
認知、解釋和評價這種影響則是學界 爲之爭論不休的話題。就澳門的個案而論,
從葡澳殖民政府過渡到“一國兩制”的框架下“澳人治澳”之特區政府的建立,不
僅是政治層面的巨大變化,更由此涉及一系列重大法律制度和法律規定的變化,
由過去那種適用于葡萄牙國內法的局面轉變到適用澳門特區法律的情勢。而這又
成 爲一系列新的社會難題乃至社會動蕩和社會危機的潜在來源之一。
觀察近年來的澳門社會,隨著經濟形勢的變化、政治權力結構的變化,以及
社會情緒的轉換,過去那種相對穩定却因而處于相對冷漠、相對平和却因而顯得
相對沉寂的社會狀况發生了一定程度的變化。不同的社會階層之間,“改革紅利
”的分配不均,導致不滿情緒的增長顯而易見;往日那種本土社會與葡人政制之
間的矛盾基本消除,却有澳門本地社會內部的衝突重新崛起。因而政治爭論、街
頭集會、群體抗爭和示威游行層出不窮,時起進伏。
凡此種種莫不體現出政治制度變遷對于澳門社會的影響至深且巨。然而,一
般的新聞分析以及學術研究更關注于引起諸般不滿和抗爭的外在的、直接的原因,
而多少忽略了那些有時處于潜在狀態的、間接性的原因。當然,這些原因也許只
作用于特定的社會階層乃至社會群體,其人數也許不多,但這些原因的存在及
其特有的性質却直指制度轉型的深層結構變化。本篇論文即意圖以圍繞著“紗紙
契”而産生的糾紛 爲研究個案,通過描述和分析,進而探討澳門政治制度的變遷
及其社會影響。
“紗紙契”原先指在葡萄牙占領氹仔和路環二島之前,清政府發給島上居民
的地契,因這種地契用紗紙寫成,故名。後來土地轉讓中仍使用普通紗紙契書寫
房地契,所以這類地契也被稱 爲紗紙契 。對于紗紙契或田則者,因過往通過“
民間契約” 證明轉讓,當時的做法須買賣相方合意且有地保(公證人)在場作
證。雖無通過立契署登記(中央登記),但按當時“鄉規俗例” 已被視爲確認交
易事實的準則,這亦是西方以至普及于現代民法中合同法法律效力的淵源。
由于葡人管治澳門,欲侵占路氹土地,原居民拒絕順應將所屬房地産業權
向當時澳葡政府注册立案,這相信也是民間拒絕接受該主權管治的一種消極響
應,故在立契公署幷無地權證明文本,因此房屋及土地的業權就由原居民代代
相傳的情况下繼承。爭議不休的紗紙契,隨著澳門回歸、經濟發展、産業轉型,該
問題在各種社會轉變的催化下日益凸顯,更令紗紙契成 爲當下要面對的社會矛
盾,主要表現在政府、開發商與少數紗紙契持有人三個主體角色之間。
澳門法律規定澳門的土地分爲:澳門公産土地、澳門私産土地、私有財産土
地、空置地和保留地等五類。目前,澳門大約有 10%的土地屬于私有土地(約
1.7 平方公里)。這些少量土地,屬于私人所有土地,澳門稱爲私家地,或私人
業權土地。紗紙契權利合法性問題發生在葡國法律、中國法律二者在澳門不同時
代相互交叉。澳門回歸,政府更替的法律繼承問題幷未能完滿的解决社會現實訴
求,然而,在基本法土地規範的制約下,其合法性的理由是否完全被 剝奪,或
須尋求變通的方案,由私人土地所有權的爭議合理轉移至私人土地使用權的範
圍內,其調整的手段乃視乎掌權政府是否從理論出發,找尋合理社會分配的批
給制度實現。
公、私權的領域劃分與少數人權利的保護是政治學所關心的熱點之一,而二
者在各國不同的國情有著不同的界定方向與標準。澳門因其獨特的歷史背景、政
治制度改變及社會轉型,令紗紙契所出現的各種經歷都有可能爲學界提供獨特
的體會與討論的題材。本文首度以此爲題,是以一項定性分析研究紗紙契的內涵
與問題出路,其不僅是進行歷史分析、制度分析、個案研究和比較研究等多種研
究方法,同時又涉及到政策評估。意在通過對紗紙契問題在澳門歷史發展脉絡的
梳理,及比對鄰近地區土地問題的分析及處理方案,指出紗紙契所面對各種問
題所在,通過引進幾項政治原則爲該問題解决提供一個學理上的視角。
鑒于現有關于澳門土地問題的研究非常有限,無論數量和質量上都無法令
人滿意。大部分研究只在澳門整體發展的同時對澳門部分土地的涉及,多數討論
則停留于對土地問題歷史和現狀的描述,而缺乏一定程度的深度分析。較深入的
研究,則傾向于法學的産權角度著眼,類似:城市規劃、房地産産業發展等公共
事業爲對象,但主要集中于制度層面的描述,缺乏檢討土地制度對社會資源分
配有效利用的實質分析。本研究的切入點紗紙契問題更是整個薄弱的土地研究環
節的一大盲點,有關可支取的材料可分爲學術文獻、經驗材料(新聞報導、檔案
記錄)、和法律法規(司法案例),幾乎不存在對該問題的系統性學理討論下,
加入實地訪談采集受影響居民從過往走過來的生活經歷及心路歷程,作 爲檢驗、
互證各種材料的真實面, 幷參 考有關香港特區及臺灣的經驗,吸收它們對土地
問題的部分研究,但主要多涉及土地徵收問題。
總結本研究的內容可包括六章節:
第一章,導言,主要概括本論文對紗紙契的定義,研究動機、目的;以及紗
紙契現時研究狀况。另總結方法論的應用,是以歷史角度、制度角度、個案分析、
比較分析、理論的切入分析,以及數據搜集的概况等作細則性的說明。
第二章,紗紙契糾紛的歷史過程分析,主要是圍繞著紗紙契討論澳門土地
問題的性質與癥結,從紗紙契的歷史(包括司法案例的裁决)與現實遭遇的情
况來說明歷史的發展及面對的問題,將其劃分爲(1)從小區、議會討論到法庭;
(2)從小區衝突到走上街頭兩個階段。另一方面,從回歸後司法案例權威性的
司法解釋中,分析《基本法》、
《民法》、《土地法》之間的法律關係作爲論證法律與
法理對紗紙契問題新定位;幷從特區體制的過渡性與銜接性,分析體制的銜接
與脫節,以及政府政策的决策機制與實施機制來論述政策均衡實施的漏弊。
第三章,紗紙契糾紛各主體間的結構分析,圍繞著紗紙契所發生的糾紛,
從政府的態度與政策、開發商的逐利心態與行爲、民衆的弱勢與反應論述各方的
立場,以回歸前後的具體的現實發展,論述糾紛的發生與發展情况。
第四章,從法律的視角論述澳門土地問題的歷史根源,分別從葡萄牙宏觀
法律視角和微觀治理角度看紗紙契問題。首先通過澳門有關法律頒布與實施的歷
史過程,描述土地在歷史發展中的問題;其次是分模糊期、議會期、殖民管治期、
地區自治期及回歸過度期五個階段,描述澳葡政府時期的土地政策與土地問題;
最後是對新澳門特區政府的土地政策與土地問題的論述;一方面涉及《基本法》
及其它法律中有關土地問題的規定;另一方面涉及到法律與法理的討論。
第五章,分析在轉型期後的澳門土地政策下,紗紙契的權歸何處?主要說
明特區體制的過渡性與銜接性,分析體制的銜接與脫節的盲點,幷從理論出發,
分析澳門權力分布狀况、政治正當性確立政權的必然性、政治文化的現實需求、憲
政制度與民互動的緊密關係,國家徵用土地的意圖及手段的合理性分析,以及
法律合法性的基礎實與民衆生活世界互相依賴的分析等,其中包括公共利益與
私人利益的界定分析、社群主義(Communitarianism) 對少數人的利益保障
提出、民主協商機制以及主體間交往理論的啓發等,企對紗紙契權歸何處提出政
治考慮與解决出路。
第六章,首先是列出可比對象—香港,以比較香港特區政府在同質的歷史背
景視角下,如何處理境內已成國有土地的現實事件“菜園村 ” 的問題,通過對
整件事件的瞭解,包括政府態度、整體經濟的考慮以及社會民間、村民的對事件
的反應,從而給予紗紙契所面對問題一個現實對照,在協商民主理論的前提下
如何在政策方面實踐推動紗紙契各牽涉方有較明確的解决方向。

關鍵詞:紗紙契;和平占有;無主土地;先占;預期反應定律
Abstract

It is undoubted that a political change can give a magnificent impact on a


society, it is also caused scholarly persistent debate on the social impact on how
should be taken to describe, to recognize, to interpret and to criticize. In the case of
Macau, since the transition was due from the sovereignty of the Colony Government
of Portugal, the new form Government was built expectantly for the Macauese
governing their own people with the framework; One country Two systems.
Moreover, it not only causes a huge impact on Political stratum, but it also causes a
series of substantial change in legal systems and legal rules in the matter of the past
legal adoption of Portuguese jurisdiction has to be transformed to the newly
circumstance for the Macau Special Economy Zone. As such, it becomes one of the
sources to create new series of potential social issues which generate sort of
fluctuation and crises.
Having observed the recent society in Macau, the change of economic
environment, the political power’s construction, and the social emotion make a certain
difference from the past social environment which was in contrast, stable, tranquil,
but now is iced and cynical. Among different social strata, the bonus of
transformation is distributed unevenly inducing unfavorable emotion has obviously
increased. The past conflict between the indigenous population and the Portuguese is
diminished, but the brand new conflict is digging out among the inner population.
And, that is why political debate, street unification, collective combat, street protest
and strike have never ended, but happened from time to time.
All those deep and large impacts in Macau society are embodied by the change
of political system, not due to others. Moreover, a common journalistic analysis and
academic research will make more concern to the outer or direct reasons of the
unfavorable and combative emotion, but, in some extent, they will neglect some of the
potential circumstance or indirect reasons. Of course, this is sometime just resorted to
the minority, a particular social stratum, or a social group, but the existence and the
characteristic of their reasons point directly to the profound transformation of the
social structure. My study is attempt to make a research of the embroiled case of
Yarn Paper Deed, in terms of description and analysis, to deepen a look on the
relationship between the change of political system and the social impact thereof.
Yarn Paper Deed was originally issued by the Dynasty Ching to the islanders
who owned the land on 2 islands, Taipa and Coloane before the Portuguese
encroached on there. The deed was made by Yarn paper, that was why so-called
Yarn Paper Deed. When the islanders dealt afterward with land commonly with the
same Yarn Paper Deed, such deed was also called Yarn Paper Deed but without
Dynasty Ching’s stamp thereon. In accordance with the rural custom, no matter Yarn
Paper Deed or the farming field Deed of which deal was made with land or real
property only required the seller and buyer’s compromise, plus a prestigious witness
was there to certify that the deal was proceeded under the fact. As regard, the deal
was considered complete and the Deed was accepted legitimacy even though no
central registration had been followed. The whole process is also conceded in the
western source of Law system which notion spreads later all over to the modern
lawful society bounding within Contract Law of Civil code.
The Portuguese attempted to govern Macau, Taipa and Coloane as well, but the
latter 2 islanders rejected to register their lands and properties officially which were
believed they intended to object that sovereignty by using such a negative way to
feedback , so none is found in Macau Official Registry for the status of their lands
and properties. However, their Lands and real properties kept inheritance over
generations. As regard, the persistent contention of Yarn Paper Deed encountering the
regressive Sovereignty, the development of the economy, the transform of the
enterprise speed up the problem to become more complicate and significant in the
present matter of Yarn Paper Deed which has to confront a larger social conflict
which likely to be counteractive among 3 different roles, the Governor, the
Enterpriser, and the Yarn Paper Deed holders.
The Land under the law in Macau has defined into 5 types, which are Public
Land of Macau, Private Land of Macau, Private Land of Individual, Vacant Land and
Reserved Land. In presence, there is 10% of Private Land of Individual
(approximated to 1.7 sq. mile) which we usually call Private Land or Property Right
of Private Land. In fact, the uncertain legitimacy of Yarn Paper Deed’s private nature
is sharply due to the interchange of the lawful systems between Portuguese and
Chinese. When regression is reached, the change of the sovereignty cannot make
change of the heritage of the lawful system to meet the people’s general appeal. As
long as the new definition of Land is binding under Basic Law, but the legitimacy of
Yarn Paper Deed is in question rightfully void. Or, we need to seek for an expedient
to change the nature of Yarn Paper Deed from Property Right, to Utility Right on the
Land or of the real property. In fact, it is shouldered by the authority of Government if
it can make adjustment with tactics supportive by theoretical principals to implement
a rational redistribution where the just and fair Leasing Land Rule should be put to
execute.
The right in either of Public or of private region, and the protection for the right
of minority are heat items in politics arena. But all those items are differently
indentified and orientated in different points of views among countries. In Macau,
embraces unique history backdrop, social and political transforms to experience Yarn
Paper Deed becoming an expectant example for scholarly digging-in and elaboration.
I thus take it as my theme ahead to put a closed analysis on its inherence of the subject
issue, discerning the way out from which, my analysis is proceeded in historical,
political sides, case and comparative study to fully be in use, whilst some political
policies are also undertaken to criticize for the purpose of pointing out the core issue
of Yarn Paper Deed. Having gone through and systemized all those supporting
materials, my work is expected to give an effective vision from political notion may
attribute to solve the issue of Yarn Paper Deed.
No matter of the quality and quantity, the shortage in related to the study of Land
in Macau cannot satisfy to furthering mine, due to most of the current materials and
articles are focus on integral development, the involvement of Land is commonly
scarce and writing in terms of description subject to the past history until to present
circumstance. However, some Legal studies trending to more deep insight in Land,
like, the City’s Constructional Plan, and/or the whole Real Estate market’s
Development, but almost are in the scope of Public achievement, those studies mainly
describe arrangement of rules, lessen to provide a thorough examinational analysis to
how social resource is entitled to be fully in use against the rules so enforced. My
cut-in Yarn Paper Deed study is therefore considered working on the blind point of the
whole weakening land aspect, all available materials and articles are concluded briefly
in scholarly studies, experimental articles (News, Filing records) and Lawful and
Juridical articles (Text Law, Case Law) but most of them are not gone through
systematical and theoretical elaboration and analysis. So, adding interviews with
islanders and Deed holders endue me to collect more factual information about their
past histories and their sensuality in the whole incidence. Such collective Data should
provide me another point of view to testify the factual reality against the written
sources gathering from all branches. Besides, I deem Hong Kong and Taiwan are also
good examples in Land for my study which should give constructional experience and
inspiration for me to learn, but most of them are collected of Land Recruitment.
In conclusion of my study, there are 6 chapters of which content briefly break-
down as follows:
Chapter 1: Preamble, an introduction of Yarn Paper Deed’s definition, the
motivation and aim of this study, and a description on the recent studies related to
Yarn Paper Deed. Besides, an explication on Methodology in my study is conclusive
by means of historical view, political system view, case analysis, and comparative
analysis, inserting theoretical analysis in all linking phenomena. Also, stipulating a
detailed explanation on all information resources.
Chapter 2: Historical Analysis of Yarn paper Deed, mainly discuss the core issue
and its nature around Yarn Paper Deed and how it mattered from the Land in Macau.
Base on the research of the history of Yarn Paper Deed (includes the judicial cases)
and of the reality it encounters in presence which can make clear explication to the
real situation about Yarn Paper Deed in which I split 2 parts, firstly, from the issue of
small community to wider discussion in legislature then appeal to the court, secondly,
from the conflicts of the small community to raising protests on the street. On the
other hand, in accordance with the authoritativeness of judicial interpretation analyses
the relationship among Basic Law, Civil code and Land Law to lock Yarn Paper Deed
a new position on its legal right. Also, base on the transition, connection of the new
political system of the Special Economic Region analyze its connectivity and non-
connectivity. At last, analyze the mechanism of both the policy making and
implement to introspect the loophole of the equilibrium in the implement of political
policy.
Chapter 3, Constructional Analysis on the Role casting in Yarn Paper Deed;
which surrounding to the contentious Yarn Paper Deed, in the stances among of the
government’s attitude and policy, the interests orientated mentality and attitude of
Land developer, and the weakness and response of the villagers, are giving way to
analyze and criticize substantial conflict and the development of Yarn Paper Deed in
the period before and after the Handover of the Macauese Sovereignty.
Chapter 4, Base on the Legal perspective with both the Marco and Micro Points
of Portuguese Legal View on Yarn Paper Deed issues, analyze the rooted problem of
Macau Land. Firstly, throughout the relative Laws’ promulgations and their
implements describe the process of historical development. Secondly, split 5
periodical stages which are the Vague Stage, the Municipal Stage, the Colonial Stage,
the Autonomous Stage, the Regression Stage, respectively to describe the whole
policies system against the Land issues during the lengthy Portuguese governing in
Macau. At last, analyze with legal scope on the Land Policies against Land Issues
generated in the new government of Special economic region of Macau, the first
aspect is emphasis Basic Law and the related Law system, the other aspect is to
emphasis the Lawful system and the Jurisprudence.
The chapter 5, To where the right should Yarn Paper Deed assort under Macau
Land Policy after transform of political system? Mainly explicate due to the
transition and connection of the transformed Political system of the Macau Special
Economic Region which to made use of analysis of the blind point of its connectivity
and non-connectivity. Also, base on theoretical view to analyze several aspects, like,
the existent scattering of Power in Macau, the entailed legitimacy of Political Power,
the substantial needs of Political Culture, the closed relationship dynamically built
between constitutional law and the people’s ordinary life, the rational terms and
attempts be adopted whenever the Government’s land recruitment exercised from
private to public domain, and the legitimacy of Law fundamentally reliant to people’s
ordinary world, etc. From which, categorical analysis on the Public interest and
Private Interest is input, Communitarianism suggesting protection to the interests of
minority is alleged, the Mechanism of Deliberative Democracy and the roles’ in
interactionism are also inspired thereof, expecting to raise up consideration in political
side for the right of Yarn Paper Deed should resort, and seeking a way out from the
dilemma.
The Chapter 6, Firstly, state out a comparable opponent as an instance, Hong
Kong which bear the similar cored historical backdrop, observe and study how Hong
Kong handles the issue of the substantial case of “The village of vegetal Garden”
where the land had become to the nature of public land. Having gone through the
whole issue which includes the attitude of the government, the whole economic
consideration, and the social and villagers’ feedback, can offer me a substantial
comparison against the issue of Yarn Paper Deed, which is also a mirror for the roles
casting in Yarn Paper Deed which should be supportive by the connotation of
deliberative Democracy to seek for a pragmatic motivation in political policy to
implement a workable way out for solving the problems created by Yarn Paper Deed.
Key words: Yarn Paper Deed; Peaceful Possession; Ownerless Land;
Preliminary Occupancy; Rule of Anticipated Reaction

You might also like