土地闲置“政府原因”的司法审查

The Judicial Review of“Governmental Causes”for Idle Land

闲置土地处置需要平衡公共利益与私人利益,闲置土地处置法律制度的建构也应围绕此目标展开。我国闲置土地处置法律制度区分了政府原因导致的土地闲置和非政府原因导致的土地闲置两种情形,并对这两种不同情形配置了相异的法律后果以在闲置土地处置中兼顾私人利益。基于对裁判文书的观察,土地闲置“政府原因”的判断是闲置土地处置司法审查中的最大争议,具体涵盖土地是否“三通一平”,是“毛地”还是“净地”出让,规划是否缺失或改变,有无实际获得土地使用权或相关许可,土地有无被政府其他功能占用,政策是否调整,等等。以上争议基本围绕《闲置土地处置办法》第8条和第21条而展开,但由于规范的抽象性以及相关概念的模糊,不同法院对土地闲置“政府原因”的判断存在较大分歧,对此有必要在提炼司法经验“活的法”基础上,调适土地闲置“政府原因”的相关规范。

Handling idle land needs to balance public interests and private interests.The construction of the legal system for idle land disposal should also focus on this goal.The legal system for the disposal of idle land in China distinguishes two situations of idle land caused by governmental or non-governmental causes,and configures different legal consequences for the two different situations to take into account private interests in this regard.Based on the analysis of the judicial judgment,this article shows that the judgment of the“governmental causes”of idle land raised the fiercest dispute in the judicial review of idle land disposal.It specifically covers issues such as whether the land infrastructure is completed,whether the land ownership is clear,whether the land plan has changed,whether the counterparty obtains land use rights,whether the land has been occupied for other government functions,and whether the policy has been adjusted.The above disputes basically center on Articles 8 and 21 of the“Measures for the Disposal of Idle Land”.However,due to the abstract norms and the vague related concepts,different courts have quite different judgments regarding the“governmental causes”of idle land.It is necessary to adjust the relevant norms of“governmental causes”for idle land on the basis of refining the judicial experience.