问 题
国有建设用地使用权人将一宗涉嫌构成闲置土地的国有建设用地使用权通过买卖方式转让给受让人，在受让人已经取得国有建设用地使用权证书后，土地行政管理部门发现该宗交易土地系闲置土地。此时，土地行政管理部门能否以交易土地系闲置土地为由，向受让人征缴土地闲置费或者无偿收回国有建设用地使用权？
The owner of the right to use state-owned construction land transferred to the transferee of the right to use state-owned construction land by way of buying and selling, the land which is suspected of identifying as idle land. After the transferee has obtained the certificate of the right to use state-owned construction land, the land administration department finds that the transaction land is idle land. At this point, can the land administration department levy land idle fee or take back the right to use state-owned construction land without compensation from the transferee on the grounds that the land is idle land?
2
意 见
笔者认为，基于信赖保护原则和物权公示公信原则，在土地行政管理部门已经为受让人办理完毕国有建设用地使用权证书的情况下，即使土地行政管理部门发现该交易土地系闲置土地，亦不应以交易土地系闲置土地为由征缴土地闲置费或者予以无偿收回。除非受让人在取得国有建设用地使用权后未及时动工开发，导致交易土地再次被认定为闲置土地。
In the author's opinion, based on the principle of reliance protection and the principle of publicity and public trust, in the case that the land administration department has completed the certificate of the right to use state-owned construction land for the transferee, even if the land administration department finds that the land sold is idle land, it shall not levy idle land fee or take it back without compensation on the ground that the land sold is idle land. Unless the transferee fails to start the development in time after obtaining the right to use the state-owned construction land, resulting in the transaction land being recognized as idle land again.
3
分 析
（一）土地行政管理部门确认拟转让土地属于闲置土地的，应当依法不予办理转让登记手续，并向国有建设用地使用权人征缴土地闲置费或者无偿收回国有建设用地使用权
1.Land administration department confirmed that the land to be transferred is idle land, shall not be registered in accordance with the law, and the state-owned construction land use right to levy land idle fee or no compensation to recover the right to use state-owned construction land.
1.构成闲置土地未依法处理完毕前，不得办理转让登记
a. Idle land before the completion of processing according to law, shall not be registered for transfer.
根据《闲置土地处置办法》第二条第一款规定，“本办法所称闲置土地，是指国有建设用地使用权人超过国有建设用地使用权有偿使用合同或者划拨决定书约定、规定的动工开发日期满一年未动工开发的国有建设用地。”第二款规定，“已动工开发但开发建设用地面积占应动工开发建设用地总面积不足三分之一或者已投资额占总投资额不足百分之二十五，中止开发建设满一年的国有建设用地，也可以认定为闲置土地。”同时，《闲置土地处置办法》第二十四条规定，“国有建设用地使用权人违反法律法规规定和合同约定、划拨决定书规定恶意囤地、炒地的，依照本办法规定处理完毕前，市、县国土资源主管部门不得受理该国有建设用地使用权人新的用地申请，不得办理被认定为闲置土地的转让、出租、抵押和变更登记。”《云南省建设用地使用权转让、出租、抵押二级市场管理办法（试行）》第九条亦规定，按照建设用地使用权出让合同约定进行投资开发，属于房屋建设工程，未完成开发投资总额25%的国有建设用地使用权，不得转让。因此，构成闲置土地未依法处理完毕前，土地行政管理部门不得办理转让登记。
According to the Measures for the Disposal of Idle Land Article 2, paragraph 1, “idle landas mentioned in these Measures refers to the state-owned construction land use right of state-owned construction land use rights over compensation for the use of the contract or agreement, the provisions of the decision on the allocation of the start date for one year did not start development of state-owned construction land.” The second paragraph provides that “It has commenced the development of land development and construction area for development should start construction with a total area of less than 1/3 or has invested less than twenty-five percent of the total investment, the state-owned construction to suspend the development and construction of a full year of land can be identified as idle land.” At the same time, Measures for the Disposal of Idle Land Article 24 provides that “state-owned construction land use rights in violation of laws and regulations and contractual agreements, the provisions of the allocation decision malicious hoarding, land speculation, in accordance with the provisions of these measures before the processing is completed, the city and county land and resources department shall not accept the state-owned construction land use right of the land application, shall not apply for transfer, rent, mortgage and registration was identified as idle land.” Article 9 of the Measures for the Management of the Secondary Market for the Transfer, Lease and Mortgage of the Right to Use Construction Land in Yunnan Province (for Trial Implementation)also stipulates that the right to use state-owned construction land that has not completed 25% of the total investment in development shall not be transferred in accordance with the contract for the transfer of the right to use construction land for investment and development, which is a housing construction project. Therefore, the land administration department is not allowed to register the transfer of idle land until it has been processed in accordance with the law.
此外，根据《闲置土地处置办法》第二章的规定，如土地行政管理部门发现有涉嫌构成闲置土地的，应当在三十日内开展调查核实工作。对于符合《闲置土地处置办法》第二条规定条件，构成闲置土地的，土地行政管理部门应当向国有建设用地使用权人下达《闲置土地认定书》，并通过门户网站等形式向社会公开闲置土地的位置、国有建设用地使用权人名称、闲置时间等信息。闲置土地没有处置完毕前，相关信息应长期公开，处置完毕后，及时撤销相关信息。
In addition, according to the provisions of Chapter 2 of the Measures for the Disposal of Idle Land, if the land administration department finds any land suspected of identifying as idle land, it shall carry out investigation and verification work within 30 days. For those who meet the conditions stipulated in Article 2 of the Measures for the Disposal of Idle Land and identified as idle land, the land administration department shall issue a "Letter of Determination of Idle Land" to the owner of the state-owned construction land use, and disclose to the public the location of the idle land, the name of the owner of the state-owned construction land use, the time of idleness and other information through portals and other forms. Before the disposal of idle land is not completed, the relevant information shall be made public for a long time, and after the disposal is completed, the relevant information shall be revoke in a timely manner.
2.构成闲置土地的，除特殊情形外，国有建设用地使用权人需征缴土地闲置费或者土地被无偿收回
b. Identified as idle land, except for special circumstances, state-owned construction land use right holders are required to pay idle land fee or land is taken back without compensation.
根据《闲置土地处置办法》第八条、第十四条的相关规定，被认定为闲置土地，除了系“政府、政府有关部门的行为造成动工开发延迟”以及“因自然灾害等不可抗力导致土地闲置”之外，闲置土地将按照下列方式处理：未动工开发满一年的，由土地行政管理部门报批后，向国有建设用地使用权人下达《征缴土地闲置费决定书》，按照土地出让或者划拨价款的百分之二十征缴土地闲置费；未动工开发满两年的，由土地行政管理部门报批后，向国有建设用地使用权人下达《收回国有建设用地使用权决定书》，无偿收回国有建设用地使用权。
According to the relevant provisions of Article 8 and Article 14 of the Measures for the Disposal of Idle Land, in addition to the "delay in starting development due to the actions of the government and relevant government departments" and "idle land due to natural disasters and other force majeure", the idle land will be dealt with in the following manner: failure to start development for one year, the land administration department reported to the approval of the state-owned construction land use right to issue a "decision to levy land idle fee", in accordance with the land grant or allocation of twenty percent of the price of land idle fee; failure to start development for two years, the land administration department will be reported to the approval of the state-owned construction land use right to issue a "decision to recover the right to use state-owned construction land" to recover the right to use state-owned construction land without compensation.
3.部分符合法定情形的闲置土地，土地行政管理部门应与国有建设用地使用权人协商处置，而无须征缴土地闲置费或被无偿收回
c. The land administrative department shall negotiate with the state-owned construction land user for disposal of some idle land conforming to the statutory conditions, without the need to levy idle land fee or be taken back without compensation.
根据《闲置土地处置办法》第八条、第十二条的相关规定，土地行政管理部门应与国有建设用地使用权人协商处置的闲置土地主要有两类：一类是因“政府、政府有关部门的行为造成动工开发延迟”（因自然灾害等不可抗力导致土地闲置的等同该情形）而造成的闲置土地（《闲置土地处置办法》第八条）；另一类是“已动工开发但开发建设用地面积占应动工开发建设用地总面积不足三分之一或者已投资额占总投资额不足百分之二十五，中止开发建设满一年”而造成的闲置土地（《闲置土地处置办法》第十二条第三款）。就前述这两类土地，根据《闲置土地处置办法》的规定，土地行政管理部门应与国有建设用地使用权人协商处置，通过延长动工开发期限，调整土地用途、规划条件，由政府安排临时使用，协议有偿收回国有建设用地使用权，置换土地和其他方式进行处置；而不是直接征缴土地闲置费或被无偿收回。
According to the relevant provisions of Articles 8 and 12 of the Measures for the Disposal of Idle Land, there are two main categories of idle land that the land administration department shall negotiate with the owner of the state-owned construction land use right for disposal: one is idle land caused by "delay in starting development due to the actions of the government or relevant government departments" (idle land caused by natural disasters and other force majeure); the other is "has started development but the development and construction of land area accounted for less than one-third of the total area of land should start development and construction or has invested less than 25 percent of the total investment, suspended development and construction for one year" and caused by the idle land ("idle land disposal measures" Article 12, paragraph 3). For these two types of land mentioned above, according to the provisions of the Measures for Disposal of Idle Land, the land administration department shall negotiate with the owner of the state-owned construction land use right for disposal, through extending the period of starting development, adjusting land use and planning conditions, arranging temporary use by the government, agreeing to take back the state-owned construction land use right with compensation, replacing the land and other ways for disposal; instead of directly levying the land idle fee or being taken back without compensation.
（二）若土地行政管理部门已经为受让人办理国有建设用地使用权证书的，基于信赖保护原则和物权公示公信原则，则不应再以交易土地系闲置土地为由向受让人征缴土地闲置费或者无偿收回土地
2.If the land administration department has already applied for the certificate of state-owned construction land use right for the transferee, based on the principle of reliance protection and the principle of publicity and public trust, the transferee should not be asked to pay the land idle fee or take back the land without compensation on the grounds that the land is idle.
在本文所讨论的问题中，针对土地行政管理部门为国有建设用地使用权受让人办理国有建设用地使用权转让手续后（受让人已取得土地权属证书的），土地行政管理部门发现该土地属于闲置土地，应否进行处罚的问题，经查询法条中并无直接规定。但笔者基于法理和案例分析，倾向于认为土地行政管理部门不应再以转让土地系闲置土地为由而对受让人进行处罚，除非是受让人作为新的国有建设用地使用权人由于其自身原因又造成了土地闲置。理由如下：
In the issue discussed in this article, after the land administration department handles the transfer formalities of the use right of state-owned construction land for the transferee of the use right of state-owned construction land (the transferee has obtained the land ownership certificate), the land administration department found that the land is idle land, whether punishment should be imposed, after checking the law does not have direct provisions. However, based on legal theory and case analysis, the author tends to believe that the land administration department should not punish the transferee for the reason that the transferred land is idle land, unless the transferee, as the new owner of the right to use state-owned construction land, has caused the land to be idle for transferee’s own reasons. The reasons are as follows:
第一，受让人作为土地转让登记行为的行政相对人，应当受到信赖保护原则的庇护，其通过依法办理土地转让登记手续而获取的国有建设用地使用权应受到法律保护。从行政法上看，信赖保护原则是指行政机关应当确保管理活动的明确性、稳定性和连贯性，从而树立和保护公民、法人或者其他组织对行政机关及其管理活动真诚信赖的原则，又称为保护合法信赖原则或者尊重合法信赖原则。本文讨论的问题中，土地行政管理部门为受让人办理土地转让登记手续并向受让人颁发国有建设用地使用权证书的行为，实际上就是确认受让人已经合法取得国有建设用地使用权并确认该土地并非闲置土地的一种行政行为。而受让人取得国有建设用地使用权证书后，假如土地行政管理部门再以该土地系闲置土地为由科以处罚，则该行为实际上否定或推翻了为受让人颁发国有建设用地使用权证书的先前行为，属于自相矛盾和自我否定的行为，是严重损害政府公信力的，亦会导致行政相对人和其他社会公众无所适从，从而引发社会秩序的混乱。因此，从行政法信赖利益保护原则出发，在本文讨论的问题中，土地行政管理部门不应再以转让土地系闲置土地为由而进行处罚。
First, the transferee, as the administrative counterpart of the land transfer registration act, should be sheltered by the principle of reliance protection, and transferee’s right to use state-owned construction land acquired through the land transfer registration procedure according to law should be protected by law. In terms of administrative law, the principle of reliance protection refers to the principle that administrative organs should ensure the clarity, stability and consistency of management activities, so as to establish and protect the sincere reliance of citizens, legal persons or other organizations on administrative organs and their management activities, also known as the principle of protection of lawful reliance or the principle of respect for lawful reliance. In the issue discussed in this paper, the land administration department's act of registering the land transfer for the transferee and issuing the certificate of the right to use state-owned construction land to the transferee is actually an administrative act to confirm that the transferee has legally obtained the right to use state-owned construction land and that the land is not idle land. After the transferee obtains the certificate of the right to use state-owned construction land, if the land administration department punishes the transferee on the ground that the land belongs to idle land, the act actually negates or overturns the previous act of issuing the certificate of the right to use state-owned construction land for the transferee, is self-contradictory and self-denying behavior, which seriously damage the credibility of the government, will also lead to the administrative counterparts and other social public confusion, thus causing social order chaos. Therefore, from the principle of protection of reliance interests in administrative law, in the issue discussed in this paper, the land administration department should no longer punish the transfer of land on the ground that it is idle land.
第二，受让人取得国有建设用地使用权后，基于物权公示公信原则，其作为该土地新的使用权人，其合法权益应受到法律保护；而此时转让人已经丧失了对该土地的合法使用权利，土地行政管理部门无论对谁进行处罚都将缺乏法律的有效支撑。所谓公示，即以公开方式使公众知晓物权变动的事实。所谓公信，亦称公信力，即物权变动符合法定公示方式就具有可信赖性的法律效力。即使物权公示出来的权利状态与实际不符，但是信赖该权利的外观而与对方进行交易的善意受让人，可以通过物权公示公信原则在物权变动中受到保护。物权公示公信原则目的在于维护交易安全，保护善意相对人的利益，维护现有的占有秩序。本文所讨论的问题中，在受让人已经成为该土地新的国有建设用地使用权人并通过转让登记进行了物权公示的情况下，即便土地行政管理部门想要以该土地系闲置土地为由进行处罚，也同时会面临“谁是处罚对象”的问题。而站在受让人的角度来讲，土地闲置并非由其原因造成，土地亦是其通过合法方式取得且已经过政府部门的合法登记确认，故由其承担土地闲置的处罚后果是不合适的。而站在转让人的角度来讲，在受让人取得该土地权属证书后，其已经丧失了土地使用权的权利基础，且土地转让行为亦已通过转让登记的方式宣告了该行为的合法性，此时对与该土地无任何利害关系的转让人进行处罚，亦有欠妥之处。当然，如果受让人作为新的国有建设用地使用权人，在后续土地开发利用过程中，由于自身原因而导致该土地闲置的，则受让人理应受到相应的处罚。
Secondly, after the transferee obtains the right to use state-owned construction land, based on the principle of publicity and public trust, as the new right to use the land, transferee’s legitimate rights and interests should be protected by law; and at this time, the transferor has lost the legitimate right to use the land, the land administration department will lack the effective support of law no matter who is punished. The so-called real rights publicity, that is, to make the public know the facts of the change of real rights in an open manner. The so-called public trust, also known as credibility, that is, the change of real rights in accordance with the legal public way has the legal effect of trustworthiness. Even if the state of the right disclosed in the real rights does not correspond to the actual state, the good faith transferee who relies on the appearance of the right and deals with the other party can be protected in the change of real right through the principle of public trust in real right. The purpose of the principle of publicity and public trust is to maintain the safety of transactions, protect the interests of bona fide relators, and maintain the existing order of possession. In the problem discussed in this paper, even if the land administration department wants to punish the land for being idle land, it will face the problem of "who is the target of punishment" when the transferee has become the new owner of the land and has made the real rights publicity through the transfer registration. From the point of view of the transferee, the idle land is not caused by transferee’s own reason, but is also obtained by legal means and has been legally registered and confirmed by the government department, so it is not appropriate for transferee to bear the consequences of the penalty for idle land. From the perspective of the transferor, after the transferee obtained the land ownership certificate, transferor has lost the right basis of land use rights, and the land transfer has been declared the legality of the act by way of transfer registration, at this time for the land has no interest in the transferor to be punished, there is also inappropriate. Of course, if the transferee as the new state-owned construction land use right, in the subsequent land development and utilization process, due to their own reasons and lead to the land idle, the transferee should be punished accordingly.
第三，笔者的上述观点，有案例支撑。在东方市人民政府与海南中置创富实业有限公司行政命令二审行政判决书【案号：（2018）琼行终1070号】中，海南省高级人民法院认为，《中华人民共和国城市房地产管理法》第三十九条规定：以出让方式取得土地使用权的，转让房地产时，应当按照出让合同约定进行投资开发，属于房屋建设工程的，完成开发投资总额的百分之二十五以上。第三十八条规定：以出让方式取得土地使用权的，不符合本法第三十九条规定的条件的房地产，不得转让。为此，行政机关在对国有土地使用权转让合同进行审批、办理变更登记与转移登记时，需要严格依法进行审查，以防用地人通过倒卖土地、办理变更登记与转移登记等方式规避土地闲置。现有证据不能证明东方市政府及其职能部门在办理变更登记时依法审查涉案土地是否符合转让的条件，以及在办理过程中存在导致该变更登记行为无效的情形。东方市政府及其职能部门如认为涉案土地已经构成闲置，可以依法依规不同意转让。政府准予转让的，则产生信赖利益保护问题，应当重新给予用地人合理的开发期限，故涉案土地不符合无偿收回国有土地使用权的条件。
Third, the author's above view is supported by cases. In the Administrative Judgment of the Second Instance of the Administrative Order between the People's Government of Dongfang City and Hainan Zhongzhi Chuangfu Industrial Co. [Case No. (2018) Qiong Xing Final 1070], the High People's Court of Hainan Province held that Article 39 of the Law of the People's Republic of China on Urban Real Estate Administration stipulates that if the land use right is acquired by way of transfer of land use rights, the transfer of real estate, should be in accordance with the contract for the transfer of investment in the development of housing construction projects, the completion of the development of more than twenty-five percent of the total investment. Article 38 stipulates: If the land use right is acquired by way of transfer, the real estate that does not meet the conditions stipulated in Article 39 of this Law shall not be transferred. For this reason, the administrative organs need to strictly examine the state-owned land use right transfer contract for approval, change registration and transfer registration in accordance with the law, in order to prevent landowners from avoiding land idleness by selling land, change registration and transfer registration. The available evidence does not prove that the Dongfang Municipal Government and its functional departments examined whether the land in question met the conditions for transfer in accordance with the law when processing the registration of changes, and that there were circumstances that made the registration of changes invalid in the process. If the Dongfang Municipal Government and its functional departments consider that the land in question has been identified as idle land, they may not agree to the transfer in accordance with the law. If the government grants the transfer, the issue of protection of reliance interests arises, and the landowner should be given a reasonable period of development again, so the land in question does not meet the conditions for the recovery of state-owned land use rights without compensation.
综上分析，笔者倾向于认为，如果交易土地属于闲置土地，但土地行政管理部门已经为交易土地办理完毕国有建设用地使用权转让手续的，基于信赖保护原则和物权公示公信原则，除非受让人未及时动工开发、导致交易土地再次被认定为闲置土地，否则，土地行政管理部门不应以交易土地系闲置土地为由，向受让人征缴土地闲置费或者无偿收回国有建设用地使用权。
Based on the above analysis, the author tends to believe that if the transaction land is idle land, but the land administration department has completed the procedures for transferring the right to use state-owned construction land for the transaction land, based on the principle of reliance protection and the principle of publicity and public trust, unless the transferee fails to start the development in time, resulting in the land in question being recognized as idle land again, the land administration department should not use the land in question as idle land. The land administration department shall not levy idle land use fee or take back the right to use state-owned construction land without compensation from the transferee on the ground that the land is idle.
以上仅为笔者的个人理解，如有不同的意见或观点，欢迎留言探讨、交流、指正。
The above is only the author's personal understanding, if anyone have different opinions or views, welcome to leave a message to discuss, exchange, correction.
本期撰稿：刘元杰、李鹏吒
本期译稿：解 佳、张 川
本期编辑：尤 喆
