违法建筑民事诉讼行政“平行嵌入”构想——兼论以行政为基础的“民行交叉”案件一并审理制度构建

Conception of administration or administrative litigation‘parallel embedding’in civil litigation of illegal building:Also on simulta⁃neous litigation proceeding of‘intersection of civil dispute and administrative dispute’based on administration

违法建筑民事纠纷与行政管理必然产生交织,一旦进入以诉讼为典型的,以行政为基础的“民行交叉”的案件,司法实践和学理演绎均表明,行政行为及相关行政诉讼结果先于民事裁判产生,可使违法建筑的非法状态在民事裁判作出前消失,扭曲裁判效果的因素得以消除,行政“平行嵌入”是改良此类案件民事裁判效果的可行路径。不同时间轴点上,“平行嵌入”呈现行政对司法的嵌入、行政诉讼对民事诉讼的嵌入的双重面向,分别呼应司法与行政、民事诉讼与行政诉讼的协同联动。推动构建这一全新综合治理机制,亟需更加紧密、更深层次的府院联动,有待“作为整体的人民法院”统筹优化民事和行政审判职能配置及诉讼流程衔接。实现路径上,民事立案触发行政程序是先决条件,“民主行附”的一并审理制度是关键环节,协同加强诉前调解促进纠纷实质性化解是必要配套。

Civil dispute of illegal building is bound to be intertwined with administrative management.Once de⁃veloping to litigation,it belongs to the typical‘intersection of civil dispute and administrative dispute’based on ad⁃ministration.Both judicial practice and theoretical deduction show that administrative acts and related administrative litigation results are occurred before civil judgment,which can make the illegal state of illegal buildings disappear be⁃fore civil judgment,and eliminate the factors that distort the civil judgment effect.Administrative‘parallel ebedding’is a feasible way to improve the civil judgment effect of such cases.At different time axis points,‘parallel embedding’presents the dual aspects,one of them is the embedding of administration into justice,the other one is administrative litigation into civil litigation.The former echoes the collaborative linkage of justice and administration,the latter echoes civil litigation and administrative litigation.To promote the construction of this new comprehensive governance mecha⁃nism,there is an urgent need for closer and deeper linkage of government and court,and the‘court as a whole’needs to coordinate and optimize civil and administrative litigation processes.On the path of realization,civil litiga⁃tion filing is a prerequisite for triggering the administrative procedure.Construction of simultaneous litigation proceed⁃ing of‘intersection of civil dispute and administrative dispute’based on administration is the key step.It is neces⁃sary to strengthen mediation before litigation to promote substantive settlement of disputes.