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法律圖書館>>法治動態>>法規釋義>;>解(jie)讀《招(zhao)標(biao)拍賣掛牌出讓國(guo)有(you)建設用(yong)地(di)使用(yong)權規定(ding)》

解讀《招標拍賣掛牌出讓國有建設用地使用權規定》

//cciia.org.cn　 2007-12-13

解讀《招(zhao)標拍賣掛牌出讓國有建(jian)設用地使用權規定》

2007年9月28日(ri)，國(guo)土資源部(bu)(bu)發布了《招標拍(pai)賣(mai)(mai)掛(gua)(gua)牌出(chu)讓(rang)國(guo)有(you)建設(she)用地使用權規定》 (中華(hua)人(ren)民共和國(guo)國(guo)土資源部(bu)(bu)令(ling)第39號)，自2007年11月1日(ri)起施行。了解修訂《招標拍(pai)賣(mai)(mai)掛(gua)(gua)牌國(guo)有(you)土地使用權規定》（2002年國(guo)土資源部(bu)(bu)11號令(ling)）的(de)背景，正確理(li)解和把握39號令(ling)的(de)基本原則、總體內容(rong)、操作程(cheng)序(xu)和重點條款，有(you)助于更(geng)好地貫徹落實《物權法》，進一步健全和完善國(guo)有(you)土地出(chu)讓(rang)制度(du)，更(geng)大(da)程(cheng)度(du)上發揮市(shi)場(chang)配置(zhi)土地資源的(de)基礎(chu)性作用。為此(ci)，我(wo)們對《招標拍(pai)賣(mai)(mai)掛(gua)(gua)牌出(chu)讓(rang)國(guo)有(you)建設(she)用地使用權規定》（下稱(cheng)39號令(ling)）的(de)重要內容(rong)進行了詳細解讀。

一、《物權(quan)法》擴大(da)了“招拍掛”出讓(rang)和建設(she)用(yong)地使用(yong)權(quan)設(she)立范(fan)圍，11號(hao)令修(xiu)訂成為必(bi)然

2002年(nian)5月(yue)9日(ri)，國土(tu)(tu)資(zi)源(yuan)(yuan)部發布了《招(zhao)標拍(pai)賣掛(gua)(gua)牌出讓(rang)國有(you)土(tu)(tu)地(di)(di)(di)(di)使用(yong)(yong)(yong)權規(gui)定(ding)(ding)》（11號令(ling)），自(zi)2002年(nian)7月(yue)1日(ri)起施(shi)行(xing)。11號令(ling)全(quan)面(mian)確(que)(que)立了經(jing)營性(xing)土(tu)(tu)地(di)(di)(di)(di)使用(yong)(yong)(yong)權招(zhao)標拍(pai)賣掛(gua)(gua)牌出讓(rang)制度(du)，明確(que)(que)規(gui)定(ding)(ding)：商業(ye)、旅游、娛樂和商品住宅等各類(lei)經(jing)營性(xing)用(yong)(yong)(yong)地(di)(di)(di)(di)，必(bi)須(xu)以(yi)招(zhao)標、拍(pai)賣或(huo)者(zhe)掛(gua)(gua)牌方式出讓(rang)，前述規(gui)定(ding)(ding)以(yi)外用(yong)(yong)(yong)途的(de)土(tu)(tu)地(di)(di)(di)(di)的(de)供地(di)(di)(di)(di)計劃(hua)公(gong)布后，同一(yi)宗地(di)(di)(di)(di)有(you)兩(liang)個以(yi)上意向用(yong)(yong)(yong)地(di)(di)(di)(di)者(zhe)的(de)，也應(ying)當采用(yong)(yong)(yong)招(zhao)標、拍(pai)賣或(huo)者(zhe)掛(gua)(gua)牌方式出讓(rang)。11號令(ling)第一(yi)次(ci)明確(que)(que)了經(jing)營性(xing)用(yong)(yong)(yong)地(di)(di)(di)(di)必(bi)須(xu)實行(xing)招(zhao)拍(pai)掛(gua)(gua)出讓(rang)，第一(yi)次(ci)對招(zhao)拍(pai)掛(gua)(gua)出讓(rang)的(de)原則、范圍、程序(xu)、法律責任(ren)進行(xing)了系統(tong)規(gui)定(ding)(ding)。11號令(ling)確(que)(que)立了市場(chang)配(pei)置土(tu)(tu)地(di)(di)(di)(di)資(zi)源(yuan)(yuan)的(de)制度(du)，其核心是通(tong)過“公(gong)開(kai)、公(gong)平、公(gong)正”的(de)市場(chang)方式確(que)(que)定(ding)(ding)土(tu)(tu)地(di)(di)(di)(di)使用(yong)(yong)(yong)權人，這一(yi)既(ji)具有(you)實體(ti)性(xing)內容又有(you)程序(xu)性(xing)規(gui)定(ding)(ding)的(de)部門(men)規(gui)章一(yi)經(jing)面(mian)世，既(ji)在(zai)社會上產生了強大的(de)反響，被業(ye)界稱為(wei)“第二次(ci)土(tu)(tu)地(di)(di)(di)(di)革命”。

隨著(zhu)土(tu)地(di)(di)使用制度改革的(de)(de)(de)(de)不(bu)(bu)斷深入和土(tu)地(di)(di)資源市場化(hua)配置程度的(de)(de)(de)(de)不(bu)(bu)斷提高，11號(hao)令在(zai)實踐中也逐漸暴露出(chu)(chu)一(yi)些局限性(xing)(xing)，需(xu)要(yao)進(jin)一(yi)步完善。比如，在(zai)招標拍(pai)賣(mai)掛(gua)牌(pai)(pai)出(chu)(chu)讓范(fan)圍上，11號(hao)令只(zhi)規(gui)定了(le)商(shang)業(ye)(ye)、旅(lv)游(you)、娛樂和商(shang)品(pin)住(zhu)宅(zhai)四類經營性(xing)(xing)用地(di)(di)必須實行招標拍(pai)賣(mai)掛(gua)牌(pai)(pai)，相對于各地(di)(di)已將工業(ye)(ye)用地(di)(di)納入招標拍(pai)賣(mai)掛(gua)牌(pai)(pai)范(fan)圍，11號(hao)令規(gui)定的(de)(de)(de)(de)出(chu)(chu)讓范(fan)圍顯得窄了(le)。另(ling)外，幾年來的(de)(de)(de)(de)土(tu)地(di)(di)出(chu)(chu)讓實踐中也發現，各地(di)(di)對招標拍(pai)賣(mai)掛(gua)牌(pai)(pai)出(chu)(chu)讓的(de)(de)(de)(de)個(ge)別(bie)實施環(huan)節在(zai)理(li)解上尚(shang)不(bu)(bu)夠一(yi)致(zhi)，操作上尚(shang)有不(bu)(bu)規(gui)范(fan)之處。

2006年，《國務院關(guan)于加(jia)強土(tu)(tu)地(di)(di)(di)(di)調控有(you)關(guan)問(wen)題(ti)的(de)(de)(de)通知》（國發［2006］31號）明(ming)確要求(qiu)：“工(gong)業(ye)用(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)必(bi)須采(cai)用(yong)(yong)(yong)(yong)(yong)招(zhao)標拍(pai)賣掛牌方式(shi)出(chu)讓”。2007年3月16日，新(xin)頒布的(de)(de)(de)《中(zhong)華人民共和國物(wu)權(quan)法(fa)》全面肯定(ding)(ding)了經營(ying)性土(tu)(tu)地(di)(di)(di)(di)使用(yong)(yong)(yong)(yong)(yong)權(quan)的(de)(de)(de)招(zhao)標拍(pai)賣掛牌出(chu)讓制度，同時對土(tu)(tu)地(di)(di)(di)(di)使用(yong)(yong)(yong)(yong)(yong)權(quan)出(chu)讓提出(chu)了一(yi)些新(xin)的(de)(de)(de)要求(qiu)。一(yi)是擴大(da)了土(tu)(tu)地(di)(di)(di)(di)使用(yong)(yong)(yong)(yong)(yong)權(quan)招(zhao)標拍(pai)賣掛牌出(chu)讓的(de)(de)(de)范圍，明(ming)確規定(ding)(ding)：“工(gong)業(ye)、商(shang)業(ye)、旅游、娛樂和商(shang)品住宅等經營(ying)性用(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)以及同一(yi)土(tu)(tu)地(di)(di)(di)(di)有(you)兩(liang)個以上(shang)(shang)意向用(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)者(zhe)的(de)(de)(de)，應當采(cai)取招(zhao)標、拍(pai)賣等公開競價(jia)的(de)(de)(de)方式(shi)出(chu)讓”；二是明(ming)確了建(jian)(jian)設用(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)使用(yong)(yong)(yong)(yong)(yong)權(quan)概念(nian)，擴大(da)了建(jian)(jian)設用(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)使用(yong)(yong)(yong)(yong)(yong)權(quan)設立(li)范圍，明(ming)確規定(ding)(ding)：“建(jian)(jian)設用(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)使用(yong)(yong)(yong)(yong)(yong)權(quan)可(ke)以在土(tu)(tu)地(di)(di)(di)(di)的(de)(de)(de)地(di)(di)(di)(di)表(biao)、地(di)(di)(di)(di)上(shang)(shang)或(huo)者(zhe)地(di)(di)(di)(di)下(xia)分別設立(li)”。為此，按照《物(wu)權(quan)法(fa)》的(de)(de)(de)要求(qiu)，及時修訂完(wan)善(shan)11號令，十分必(bi)要。

為貫徹落(luo)實(shi)《物權(quan)(quan)法(fa)》，根據部2007年立法(fa)工作計劃，國(guo)土資(zi)源部土地(di)(di)利用司(si)、法(fa)規(gui)司(si)對部11號(hao)令(ling)(ling)實(shi)施以(yi)來(lai)經營性土地(di)(di)招標(biao)拍(pai)賣掛牌出(chu)讓(rang)的(de)工作實(shi)踐進行了認(ren)真調研和(he)總結(jie)，對11號(hao)令(ling)(ling)中(zhong)與《物權(quan)(quan)法(fa)》規(gui)定不一致的(de)內(nei)容進行了修訂。9月(yue)21日(ri)，國(guo)土資(zi)源部第3次部務會議(yi)審議(yi)通過9月(yue)28日(ri)，徐(xu)紹史部長簽發(fa)了39號(hao)令(ling)(ling)，發(fa)布《招標(biao)拍(pai)賣掛牌出(chu)讓(rang)國(guo)有建設用地(di)(di)使用權(quan)(quan)規(gui)定》。

二(er)、39號令進(jin)一步完善和發(fa)展了11號令規定的(de)各項制度

11號令發布后的(de)五年間，各地(di)大(da)力推(tui)進土(tu)(tu)(tu)地(di)招(zhao)標(biao)拍(pai)(pai)(pai)賣掛牌(pai)出(chu)讓制(zhi)度(du)建設，11號令確立的(de)招(zhao)標(biao)拍(pai)(pai)(pai)賣掛牌(pai)制(zhi)度(du)產生(sheng)了(le)巨大(da)的(de)政(zheng)策效(xiao)應(ying)，目前(qian)，全國已普遍(bian)建立了(le)經營性土(tu)(tu)(tu)地(di)招(zhao)標(biao)拍(pai)(pai)(pai)賣掛牌(pai)出(chu)讓制(zhi)度(du)，商業、旅(lv)游、娛樂和(he)(he)商品住(zhu)宅等經營性土(tu)(tu)(tu)地(di)，全面實(shi)行了(le)“招(zhao)拍(pai)(pai)(pai)掛”出(chu)讓，反(fan)映市場供求狀況和(he)(he)資源稀(xi)缺(que)程度(du)的(de)土(tu)(tu)(tu)地(di)價格機(ji)制(zhi)初步形成，市場在土(tu)(tu)(tu)地(di)資源配置(zhi)中的(de)基礎性作用得到有(you)效(xiao)發揮。據統計(ji)，全國“招(zhao)拍(pai)(pai)(pai)掛”出(chu)讓土(tu)(tu)(tu)地(di)的(de)面積和(he)(he)價款從(cong)2001年的(de)0.66萬公頃(qing)(qing)、492億元，提(ti)高(gao)到2006年的(de)6.65萬公頃(qing)(qing)、5492億元，分(fen)別提(ti)高(gao)了(le)9倍(bei)和(he)(he)10.2倍(bei)。實(shi)踐(jian)證(zheng)明，11號令確立的(de)招(zhao)標(biao)拍(pai)(pai)(pai)賣掛牌(pai)制(zhi)度(du)符(fu)合建立和(he)(he)完善(shan)社會主義市場經濟體(ti)制(zhi)的(de)發展(zhan)方向，有(you)力地(di)推(tui)進了(le)市場取向的(de)土(tu)(tu)(tu)地(di)使用制(zhi)度(du)改革。

正因為如(ru)此，招標拍賣掛(gua)牌(pai)出(chu)讓(rang)制度(du)被新《物權(quan)法(fa)》所肯定(ding)和接受，成為法(fa)律規(gui)定(ding)。因此，新發布的(de)(de)39號(hao)令(ling)在(zai)保持11號(hao)令(ling)的(de)(de)基本原則(ze)、總體框架和主(zhu)要內容不變的(de)(de)前(qian)提下，主(zhu)要是將《物權(quan)法(fa)》關于建設用(yong)地使用(yong)權(quan)出(chu)讓(rang)的(de)(de)新規(gui)定(ding)落實在(zai)國(guo)土(tu)資(zi)源部的(de)(de)政(zheng)策中，同時就(jiu)11號(hao)令(ling)中個別環節銜接不夠嚴密的(de)(de)條款，作(zuo)了(le)進(jin)一步完(wan)善。與11號(hao)令(ling)一樣，39號(hao)令(ling)共(gong)28條，主(zhu)要包括(kuo)招標拍賣掛(gua)牌(pai)出(chu)讓(rang)的(de)(de)法(fa)律依據，招標拍賣掛(gua)牌(pai)出(chu)讓(rang)的(de)(de)范圍(wei)和原則(ze)，出(chu)讓(rang)計劃、出(chu)讓(rang)方案的(de)(de)編制和公(gong)開發布，招標拍賣掛(gua)牌(pai)文件的(de)(de)編制和公(gong)開，招投標程序、拍賣程序、掛(gua)牌(pai)程序，出(chu)讓(rang)結(jie)果公(gong)布，出(chu)讓(rang)金繳(jiao)納和發放土(tu)地使用(yong)證，以及(ji)法(fa)律責(ze)任等內容。

三、擴(kuo)大了建設用(yong)地使用(yong)權的設立范(fan)圍：概念(nian)、名稱和空間范(fan)圍

2002年(nian)發(fa)布(bu)的(de)(de)(de)(de)(de)部(bu)11號(hao)(hao)令(ling)(ling)名(ming)稱是《招(zhao)標(biao)拍(pai)賣掛(gua)牌出(chu)(chu)(chu)讓(rang)(rang)(rang)國(guo)(guo)(guo)有(you)(you)(you)(you)土(tu)(tu)地(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)權(quan)(quan)(quan)規(gui)定(ding)(ding)(ding)(ding)》，內容均是對(dui)國(guo)(guo)(guo)有(you)(you)(you)(you)土(tu)(tu)地(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)權(quan)(quan)(quan)出(chu)(chu)(chu)讓(rang)(rang)(rang)進(jin)(jin)行(xing)的(de)(de)(de)(de)(de)具體規(gui)定(ding)(ding)(ding)(ding)。《物(wu)權(quan)(quan)(quan)法》第(di)十二(er)(er)章不(bu)(bu)僅(jin)專(zhuan)門明確了建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)權(quan)(quan)(quan)的(de)(de)(de)(de)(de)名(ming)稱，而(er)且規(gui)定(ding)(ding)(ding)(ding)了建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)權(quan)(quan)(quan)可(ke)以(yi)(yi)分別在(zai)土(tu)(tu)地(di)(di)(di)(di)(di)的(de)(de)(de)(de)(de)地(di)(di)(di)(di)(di)表(biao)、地(di)(di)(di)(di)(di)上或者(zhe)地(di)(di)(di)(di)(di)下(xia)設(she)(she)(she)(she)(she)(she)立(li)(li)(li)。根據(ju)《物(wu)權(quan)(quan)(quan)法》規(gui)定(ding)(ding)(ding)(ding)，建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)權(quan)(quan)(quan)的(de)(de)(de)(de)(de)設(she)(she)(she)(she)(she)(she)立(li)(li)(li)不(bu)(bu)是一(yi)個(ge)平面(mian)(mian)、二(er)(er)維概(gai)念(nian)，而(er)是一(yi)個(ge)空(kong)(kong)間(jian)、立(li)(li)(li)體的(de)(de)(de)(de)(de)概(gai)念(nian)。因(yin)此，按(an)照(zhao)(zhao)產(chan)權(quan)(quan)(quan)法定(ding)(ding)(ding)(ding)的(de)(de)(de)(de)(de)原則，39號(hao)(hao)令(ling)(ling)首先將(jiang)11號(hao)(hao)令(ling)(ling)中有(you)(you)(you)(you)關“國(guo)(guo)(guo)有(you)(you)(you)(you)土(tu)(tu)地(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)權(quan)(quan)(quan)”表(biao)述一(yi)律修(xiu)改為(wei)“國(guo)(guo)(guo)有(you)(you)(you)(you)建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)權(quan)(quan)(quan)”，修(xiu)訂后的(de)(de)(de)(de)(de)名(ming)稱為(wei)《招(zhao)標(biao)拍(pai)賣掛(gua)牌出(chu)(chu)(chu)讓(rang)(rang)(rang)國(guo)(guo)(guo)有(you)(you)(you)(you)建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)權(quan)(quan)(quan)規(gui)定(ding)(ding)(ding)(ding)》；其次，在(zai)39號(hao)(hao)令(ling)(ling)第(di)二(er)(er)條(tiao)明確：國(guo)(guo)(guo)有(you)(you)(you)(you)建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)權(quan)(quan)(quan)可(ke)以(yi)(yi)采取招(zhao)標(biao)、拍(pai)賣或者(zhe)掛(gua)牌出(chu)(chu)(chu)讓(rang)(rang)(rang)方(fang)(fang)式在(zai)土(tu)(tu)地(di)(di)(di)(di)(di)的(de)(de)(de)(de)(de)地(di)(di)(di)(di)(di)表(biao)、地(di)(di)(di)(di)(di)上或者(zhe)地(di)(di)(di)(di)(di)下(xia)設(she)(she)(she)(she)(she)(she)立(li)(li)(li)；第(di)三(san)(san)，將(jiang)原11號(hao)(hao)令(ling)(ling)第(di)六(liu)條(tiao)、第(di)九(jiu)條(tiao)、第(di)十五條(tiao)、第(di)十七條(tiao)中擬出(chu)(chu)(chu)讓(rang)(rang)(rang)土(tu)(tu)地(di)(di)(di)(di)(di)的(de)(de)(de)(de)(de)“位(wei)置” 一(yi)律修(xiu)改為(wei)：“界址、空(kong)(kong)間(jian)范(fan)圍”。今(jin)后，各地(di)(di)(di)(di)(di)在(zai)開展國(guo)(guo)(guo)有(you)(you)(you)(you)建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)出(chu)(chu)(chu)讓(rang)(rang)(rang)活動中，必須(xu)注意兩個(ge)方(fang)(fang)面(mian)(mian)，一(yi)是在(zai)擬定(ding)(ding)(ding)(ding)宗地(di)(di)(di)(di)(di)出(chu)(chu)(chu)讓(rang)(rang)(rang)方(fang)(fang)案(an)、編制出(chu)(chu)(chu)讓(rang)(rang)(rang)文件、簽訂土(tu)(tu)地(di)(di)(di)(di)(di)出(chu)(chu)(chu)讓(rang)(rang)(rang)合(he)(he)同時(shi)，應(ying)(ying)當(dang)按(an)照(zhao)(zhao)39號(hao)(hao)令(ling)(ling)的(de)(de)(de)(de)(de)要求，明確出(chu)(chu)(chu)讓(rang)(rang)(rang)宗地(di)(di)(di)(di)(di)的(de)(de)(de)(de)(de)界址點和(he)(he)(he)(he)空(kong)(kong)間(jian)范(fan)圍，以(yi)(yi)空(kong)(kong)間(jian)體積(ji)代(dai)替平面(mian)(mian)面(mian)(mian)積(ji)，用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)以(yi)(yi)劃定(ding)(ding)(ding)(ding)和(he)(he)(he)(he)標(biao)示(shi)建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)權(quan)(quan)(quan)的(de)(de)(de)(de)(de)權(quan)(quan)(quan)利范(fan)圍，并作(zuo)為(wei)計(ji)算(suan)出(chu)(chu)(chu)讓(rang)(rang)(rang)金的(de)(de)(de)(de)(de)依(yi)據(ju)。在(zai)進(jin)(jin)行(xing)土(tu)(tu)地(di)(di)(di)(di)(di)登(deng)(deng)(deng)記(ji)(ji)時(shi)，不(bu)(bu)僅(jin)應(ying)(ying)當(dang)記(ji)(ji)載用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)以(yi)(yi)確定(ding)(ding)(ding)(ding)土(tu)(tu)地(di)(di)(di)(di)(di)面(mian)(mian)積(ji)的(de)(de)(de)(de)(de)數據(ju)和(he)(he)(he)(he)圖(tu)形，還應(ying)(ying)當(dang)記(ji)(ji)載垂直方(fang)(fang)向的(de)(de)(de)(de)(de)高程，構成一(yi)個(ge)三(san)(san)維立(li)(li)(li)體空(kong)(kong)間(jian)，以(yi)(yi)標(biao)示(shi)出(chu)(chu)(chu)建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)權(quan)(quan)(quan)的(de)(de)(de)(de)(de)權(quan)(quan)(quan)利范(fan)圍。二(er)(er)是各地(di)(di)(di)(di)(di)在(zai)國(guo)(guo)(guo)有(you)(you)(you)(you)建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)供應(ying)(ying)中，要轉(zhuan)變(bian)原有(you)(you)(you)(you)的(de)(de)(de)(de)(de)觀念(nian)和(he)(he)(he)(he)模式，積(ji)極(ji)研究(jiu)制訂國(guo)(guo)(guo)有(you)(you)(you)(you)建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)權(quan)(quan)(quan)設(she)(she)(she)(she)(she)(she)立(li)(li)(li)、登(deng)(deng)(deng)記(ji)(ji)等有(you)(you)(you)(you)針對(dui)性(xing)的(de)(de)(de)(de)(de)政(zheng)策措(cuo)施，在(zai)擬定(ding)(ding)(ding)(ding)國(guo)(guo)(guo)有(you)(you)(you)(you)建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)宗地(di)(di)(di)(di)(di)方(fang)(fang)案(an)，編制國(guo)(guo)(guo)有(you)(you)(you)(you)建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)出(chu)(chu)(chu)讓(rang)(rang)(rang)文件，簽訂國(guo)(guo)(guo)有(you)(you)(you)(you)建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)權(quan)(quan)(quan)出(chu)(chu)(chu)讓(rang)(rang)(rang)合(he)(he)同或發(fa)出(chu)(chu)(chu)國(guo)(guo)(guo)有(you)(you)(you)(you)建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)劃撥(bo)決定(ding)(ding)(ding)(ding)書、進(jin)(jin)行(xing)國(guo)(guo)(guo)有(you)(you)(you)(you)建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)權(quan)(quan)(quan)登(deng)(deng)(deng)記(ji)(ji)和(he)(he)(he)(he)發(fa)放(fang)國(guo)(guo)(guo)有(you)(you)(you)(you)建(jian)設(she)(she)(she)(she)(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)(yong)權(quan)(quan)(quan)證書中，要充分體現(xian)《物(wu)權(quan)(quan)(quan)法》和(he)(he)(he)(he)39號(hao)(hao)令(ling)(ling)的(de)(de)(de)(de)(de)規(gui)定(ding)(ding)(ding)(ding)。

四、應當招標拍賣(mai)掛(gua)牌出讓(rang)的范圍：六(liu)類情形和一個認(ren)定機制

11號令明(ming)確了商業(ye)(ye)、旅(lv)游、娛(yu)樂、商品(pin)住宅(zhai)(zhai)等四(si)類(lei)經營(ying)性用(yong)(yong)(yong)地和同一(yi)(yi)土地有(you)兩個(ge)或(huo)(huo)兩個(ge)以(yi)(yi)上意向用(yong)(yong)(yong)地者的(de)，應當(dang)招標拍賣掛牌出(chu)讓。鑒(jian)于(yu)《物權法》第(di)137條明(ming)確將(jiang)工(gong)業(ye)(ye)用(yong)(yong)(yong)地出(chu)讓納(na)入招標拍賣掛牌范圍，因(yin)此，39號令第(di)四(si)條明(ming)確規定：工(gong)業(ye)(ye)、商業(ye)(ye)、旅(lv)游、娛(yu)樂和商品(pin)住宅(zhai)(zhai)等經營(ying)性用(yong)(yong)(yong)地以(yi)(yi)及同一(yi)(yi)宗地有(you)兩個(ge)以(yi)(yi)上意向用(yong)(yong)(yong)地者的(de)，應當(dang)以(yi)(yi)招標、拍賣或(huo)(huo)者掛牌方式出(chu)讓。同時考慮到采礦(kuang)用(yong)(yong)(yong)地的(de)取(qu)得(de)和使用(yong)(yong)(yong)要(yao)以(yi)(yi)取(qu)得(de)探礦(kuang)權或(huo)(huo)采礦(kuang)權為前(qian)提條件，因(yin)此明(ming)確，工(gong)業(ye)(ye)用(yong)(yong)(yong)地包(bao)括(kuo)倉儲用(yong)(yong)(yong)地，但(dan)不包(bao)括(kuo)采礦(kuang)用(yong)(yong)(yong)地。

因此，各(ge)地(di)(di)(di)(di)(di)(di)(di)(di)(di)在招(zhao)(zhao)(zhao)(zhao)標拍(pai)賣(mai)(mai)(mai)掛牌(pai)(pai)出(chu)(chu)(chu)讓(rang)(rang)(rang)活動中，可根據(ju)《物(wu)權法(fa)(fa)(fa)》、39號令和《招(zhao)(zhao)(zhao)(zhao)標拍(pai)賣(mai)(mai)(mai)掛牌(pai)(pai)出(chu)(chu)(chu)讓(rang)(rang)(rang)國(guo)(guo)(guo)有(you)(you)土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)權規(gui)(gui)范(fan)》等法(fa)(fa)(fa)律政(zheng)策(ce)，來確(que)定(ding)(ding)(ding)(ding)土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)出(chu)(chu)(chu)讓(rang)(rang)(rang)是(shi)采取協(xie)議(yi)(yi)方(fang)式還是(shi)采取招(zhao)(zhao)(zhao)(zhao)標拍(pai)賣(mai)(mai)(mai)掛牌(pai)(pai)方(fang)式。一般來說，六類(lei)(lei)情(qing)形的(de)(de)土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)必(bi)須實(shi)(shi)行(xing)招(zhao)(zhao)(zhao)(zhao)標拍(pai)賣(mai)(mai)(mai)掛牌(pai)(pai)方(fang)式，即(ji)（1）供(gong)應(ying)(ying)(ying)(ying)工(gong)業(ye)(ye)、商業(ye)(ye)、旅游、娛(yu)樂和商品(pin)住(zhu)宅等各(ge)類(lei)(lei)經營性用(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)(di)(di)(di)(di)；（2）其他土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)供(gong)地(di)(di)(di)(di)(di)(di)(di)(di)(di)計(ji)劃(hua)公布后同一宗(zong)地(di)(di)(di)(di)(di)(di)(di)(di)(di)有(you)(you)兩個(ge)(ge)或(huo)者兩個(ge)(ge)以(yi)上(shang)意向(xiang)用(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)(di)(di)(di)(di)者的(de)(de)；（3）劃(hua)撥土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)權改(gai)變用(yong)(yong)(yong)(yong)途，《國(guo)(guo)(guo)有(you)(you)土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)劃(hua)撥決(jue)(jue)定(ding)(ding)(ding)(ding)書(shu)》或(huo)法(fa)(fa)(fa)律、法(fa)(fa)(fa)規(gui)(gui)、行(xing)政(zheng)規(gui)(gui)定(ding)(ding)(ding)(ding)等明(ming)確(que)應(ying)(ying)(ying)(ying)當(dang)(dang)(dang)收(shou)回(hui)土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)權，實(shi)(shi)行(xing)招(zhao)(zhao)(zhao)(zhao)標拍(pai)賣(mai)(mai)(mai)掛牌(pai)(pai)出(chu)(chu)(chu)讓(rang)(rang)(rang)的(de)(de)；（4）劃(hua)撥土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)權轉(zhuan)讓(rang)(rang)(rang)，《國(guo)(guo)(guo)有(you)(you)土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)劃(hua)撥決(jue)(jue)定(ding)(ding)(ding)(ding)書(shu)》或(huo)法(fa)(fa)(fa)律、法(fa)(fa)(fa)規(gui)(gui)、行(xing)政(zheng)規(gui)(gui)定(ding)(ding)(ding)(ding)等明(ming)確(que)應(ying)(ying)(ying)(ying)當(dang)(dang)(dang)收(shou)回(hui)土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)權，實(shi)(shi)行(xing)招(zhao)(zhao)(zhao)(zhao)標拍(pai)賣(mai)(mai)(mai)掛牌(pai)(pai)出(chu)(chu)(chu)讓(rang)(rang)(rang)的(de)(de)；（5）出(chu)(chu)(chu)讓(rang)(rang)(rang)土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)權改(gai)變用(yong)(yong)(yong)(yong)途，《國(guo)(guo)(guo)有(you)(you)土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)權出(chu)(chu)(chu)讓(rang)(rang)(rang)合(he)(he)同》約定(ding)(ding)(ding)(ding)或(huo)法(fa)(fa)(fa)律、法(fa)(fa)(fa)規(gui)(gui)、行(xing)政(zheng)規(gui)(gui)定(ding)(ding)(ding)(ding)等明(ming)確(que)應(ying)(ying)(ying)(ying)當(dang)(dang)(dang)收(shou)回(hui)土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)權，實(shi)(shi)行(xing)招(zhao)(zhao)(zhao)(zhao)標拍(pai)賣(mai)(mai)(mai)掛牌(pai)(pai)出(chu)(chu)(chu)讓(rang)(rang)(rang)的(de)(de)；（6）依法(fa)(fa)(fa)應(ying)(ying)(ying)(ying)當(dang)(dang)(dang)招(zhao)(zhao)(zhao)(zhao)標拍(pai)賣(mai)(mai)(mai)掛牌(pai)(pai)出(chu)(chu)(chu)讓(rang)(rang)(rang)的(de)(de)其他情(qing)形。特(te)別(bie)需要明(ming)確(que)的(de)(de)是(shi)，2006年(nian)國(guo)(guo)(guo)土(tu)(tu)(tu)(tu)資源部下發的(de)(de)《招(zhao)(zhao)(zhao)(zhao)標拍(pai)賣(mai)(mai)(mai)掛牌(pai)(pai)出(chu)(chu)(chu)讓(rang)(rang)(rang)國(guo)(guo)(guo)有(you)(you)土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)權規(gui)(gui)范(fan)》中，建立了國(guo)(guo)(guo)有(you)(you)土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)出(chu)(chu)(chu)讓(rang)(rang)(rang)的(de)(de)集(ji)(ji)體(ti)(ti)認(ren)(ren)定(ding)(ding)(ding)(ding)程序，對(dui)不能(neng)確(que)定(ding)(ding)(ding)(ding)是(shi)否(fou)符合(he)(he)協(xie)議(yi)(yi)或(huo)招(zhao)(zhao)(zhao)(zhao)標拍(pai)賣(mai)(mai)(mai)掛牌(pai)(pai)出(chu)(chu)(chu)讓(rang)(rang)(rang)范(fan)圍的(de)(de)具(ju)體(ti)(ti)宗(zong)地(di)(di)(di)(di)(di)(di)(di)(di)(di)，由國(guo)(guo)(guo)有(you)(you)土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)權出(chu)(chu)(chu)讓(rang)(rang)(rang)協(xie)調(diao)決(jue)(jue)策(ce)機構(gou)集(ji)(ji)體(ti)(ti)認(ren)(ren)定(ding)(ding)(ding)(ding)出(chu)(chu)(chu)讓(rang)(rang)(rang)的(de)(de)具(ju)體(ti)(ti)方(fang)式。因此，對(dui)不能(neng)確(que)定(ding)(ding)(ding)(ding)是(shi)否(fou)符合(he)(he)上(shang)述招(zhao)(zhao)(zhao)(zhao)標拍(pai)賣(mai)(mai)(mai)掛牌(pai)(pai)出(chu)(chu)(chu)讓(rang)(rang)(rang)范(fan)圍六種情(qing)形的(de)(de)出(chu)(chu)(chu)讓(rang)(rang)(rang)宗(zong)地(di)(di)(di)(di)(di)(di)(di)(di)(di)，應(ying)(ying)(ying)(ying)當(dang)(dang)(dang)經國(guo)(guo)(guo)有(you)(you)土(tu)(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)(di)使(shi)(shi)用(yong)(yong)(yong)(yong)權出(chu)(chu)(chu)讓(rang)(rang)(rang)協(xie)調(diao)決(jue)(jue)策(ce)機構(gou)集(ji)(ji)體(ti)(ti)認(ren)(ren)定(ding)(ding)(ding)(ding)，集(ji)(ji)體(ti)(ti)認(ren)(ren)定(ding)(ding)(ding)(ding)應(ying)(ying)(ying)(ying)當(dang)(dang)(dang)采取招(zhao)(zhao)(zhao)(zhao)標拍(pai)賣(mai)(mai)(mai)掛牌(pai)(pai)方(fang)式的(de)(de)，也(ye)應(ying)(ying)(ying)(ying)當(dang)(dang)(dang)以(yi)招(zhao)(zhao)(zhao)(zhao)標拍(pai)賣(mai)(mai)(mai)掛牌(pai)(pai)方(fang)式出(chu)(chu)(chu)讓(rang)(rang)(rang)。

五、不得人為限(xian)制申請人資(zi)格和條件(jian)：公開、公平、公正原則中公開是第一位的(de)

11號令明確，招標(biao)(biao)(biao)拍賣(mai)掛(gua)(gua)(gua)(gua)牌出(chu)讓(rang)(rang)(rang)(rang)(rang)應當遵(zun)循公(gong)(gong)開、公(gong)(gong)平(ping)、公(gong)(gong)正的(de)(de)原(yuan)則，符合(he)條(tiao)件的(de)(de)競(jing)買(mai)申(shen)請人(ren)，都可以參加招標(biao)(biao)(biao)拍賣(mai)掛(gua)(gua)(gua)(gua)牌出(chu)讓(rang)(rang)(rang)(rang)(rang)活(huo)動(dong)(dong)。我們理(li)解，在(zai)公(gong)(gong)開、公(gong)(gong)平(ping)、公(gong)(gong)正三(san)原(yuan)則中(zhong)，公(gong)(gong)開是首要的(de)(de)、第(di)一位的(de)(de)，沒有充分的(de)(de)公(gong)(gong)開，就談不(bu)上(shang)(shang)公(gong)(gong)平(ping)，也實現不(bu)了(le)公(gong)(gong)正。但在(zai)實踐中(zhong)，一些地(di)方違反“三(san)公(gong)(gong)”原(yuan)則，在(zai)招標(biao)(biao)(biao)拍賣(mai)掛(gua)(gua)(gua)(gua)牌出(chu)讓(rang)(rang)(rang)(rang)(rang)公(gong)(gong)告(gao)中(zhong)，設(she)置注冊資金(jin)、房地(di)產開發資質、稅務注冊地(di)、投資規(gui)模、成品油資質等(deng)排(pai)他性(xing)的(de)(de)限制條(tiao)件，為特定(ding)(ding)的(de)(de)某個(ge)競(jing)買(mai)人(ren)量(liang)身定(ding)(ding)做(zuo)，排(pai)斥意向外的(de)(de)競(jing)買(mai)人(ren)參加招標(biao)(biao)(biao)拍賣(mai)掛(gua)(gua)(gua)(gua)牌出(chu)讓(rang)(rang)(rang)(rang)(rang)活(huo)動(dong)(dong)，有的(de)(de)地(di)方在(zai)出(chu)讓(rang)(rang)(rang)(rang)(rang)公(gong)(gong)告(gao)中(zhong)甚(shen)至規(gui)定(ding)(ding)：申(shen)請人(ren)必(bi)須是全國零售業前五名(ming)(ming)、必(bi)須繳納(na)1億5千萬美(mei)元或(huo)等(deng)值外幣(bi)的(de)(de)競(jing)買(mai)保證金(jin)、必(bi)須具有國際認證的(de)(de)賽(sai)車資格等(deng)等(deng)，才(cai)能參加競(jing)買(mai)。這(zhe)種招標(biao)(biao)(biao)拍賣(mai)掛(gua)(gua)(gua)(gua)牌出(chu)讓(rang)(rang)(rang)(rang)(rang)名(ming)(ming)義上(shang)(shang)是公(gong)(gong)開出(chu)讓(rang)(rang)(rang)(rang)(rang)，實際上(shang)(shang)卻非真正的(de)(de)市場配置。為此，39號令特別增(zeng)加了(le)不(bu)得對競(jing)買(mai)申(shen)請人(ren)設(she)定(ding)(ding)限制條(tiao)件的(de)(de)條(tiao)款(kuan)，在(zai)第(di)十一條(tiao)規(gui)定(ding)(ding)：“中(zhong)華人(ren)民(min)共和(he)國境(jing)內外的(de)(de)自然人(ren)、法(fa)人(ren)和(he)其他組(zu)織(zhi)，除法(fa)律、法(fa)規(gui)另(ling)有規(gui)定(ding)(ding)外，均可申(shen)請參加國有建設(she)用(yong)地(di)使(shi)用(yong)權招標(biao)(biao)(biao)拍賣(mai)掛(gua)(gua)(gua)(gua)牌出(chu)讓(rang)(rang)(rang)(rang)(rang)活(huo)動(dong)(dong)。出(chu)讓(rang)(rang)(rang)(rang)(rang)人(ren)在(zai)招標(biao)(biao)(biao)拍賣(mai)掛(gua)(gua)(gua)(gua)牌出(chu)讓(rang)(rang)(rang)(rang)(rang)公(gong)(gong)告(gao)中(zhong)不(bu)得設(she)定(ding)(ding)影響公(gong)(gong)平(ping)、公(gong)(gong)正競(jing)爭的(de)(de)限制條(tiao)件”。這(zhe)一規(gui)定(ding)(ding)，有利于(yu)增(zeng)加招標(biao)(biao)(biao)拍賣(mai)掛(gua)(gua)(gua)(gua)牌活(huo)動(dong)(dong)的(de)(de)公(gong)(gong)開性(xing)，保證公(gong)(gong)平(ping)和(he)公(gong)(gong)正。

六、工業用地出(chu)讓方(fang)案(an)和出(chu)讓文件編制應當(dang)突出(chu)工業用地特(te)點

工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)用(yong)(yong)地(di)(di)(di)(di)(di)(di)招(zhao)標(biao)(biao)拍(pai)(pai)(pai)賣(mai)(mai)掛牌(pai)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)制(zhi)(zhi)度，已(yi)通(tong)過國務院31號文件(jian)(jian)和(he)(he)(he)(he)(he)《物(wu)權法》確立下來(lai)，并在(zai)部(bu)(bu)39號令中(zhong)再次明(ming)確規(gui)(gui)定(ding)。因此(ci)，再討論工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)用(yong)(yong)地(di)(di)(di)(di)(di)(di)能(neng)(neng)不(bu)(bu)能(neng)(neng)或應(ying)(ying)不(bu)(bu)應(ying)(ying)該招(zhao)標(biao)(biao)拍(pai)(pai)(pai)賣(mai)(mai)掛牌(pai)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)已(yi)經沒(mei)有任何意義(yi)。當前(qian)和(he)(he)(he)(he)(he)今(jin)后一(yi)個時(shi)期，各(ge)地(di)(di)(di)(di)(di)(di)應(ying)(ying)當深入研究(jiu)的(de)(de)(de)問題是：工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)用(yong)(yong)地(di)(di)(di)(di)(di)(di)招(zhao)標(biao)(biao)拍(pai)(pai)(pai)賣(mai)(mai)掛牌(pai)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)和(he)(he)(he)(he)(he)其他(ta)經營性房地(di)(di)(di)(di)(di)(di)產(chan)(chan)用(yong)(yong)地(di)(di)(di)(di)(di)(di)招(zhao)標(biao)(biao)拍(pai)(pai)(pai)賣(mai)(mai)掛牌(pai)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)有什么區別(bie)，其特點(dian)(dian)(dian)是什么？針(zhen)對(dui)工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)用(yong)(yong)地(di)(di)(di)(di)(di)(di)自身的(de)(de)(de)特殊性，如何科學(xue)擬(ni)訂(ding)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)計劃(hua)，合理(li)(li)(li)編(bian)制(zhi)(zhi)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)文件(jian)(jian)，有效開展工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)用(yong)(yong)地(di)(di)(di)(di)(di)(di)招(zhao)標(biao)(biao)拍(pai)(pai)(pai)賣(mai)(mai)掛牌(pai)活動？依據相(xiang)關法律法規(gui)(gui)和(he)(he)(he)(he)(he)政策，各(ge)地(di)(di)(di)(di)(di)(di)在(zai)工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)用(yong)(yong)地(di)(di)(di)(di)(di)(di)招(zhao)標(biao)(biao)拍(pai)(pai)(pai)賣(mai)(mai)掛牌(pai)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)的(de)(de)(de)操(cao)作(zuo)程序、操(cao)作(zuo)技(ji)術上，至少要(yao)(yao)把握以(yi)下兩(liang)個關鍵(jian)點(dian)(dian)(dian)。一(yi)是擬(ni)訂(ding)工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)用(yong)(yong)地(di)(di)(di)(di)(di)(di)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)方(fang)(fang)案要(yao)(yao)統籌考(kao)慮各(ge)方(fang)(fang)面因素，突出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)用(yong)(yong)地(di)(di)(di)(di)(di)(di)特點(dian)(dian)(dian)。不(bu)(bu)同產(chan)(chan)業(ye)(ye)(ye)(ye)(ye)(ye)類型(xing)、不(bu)(bu)同規(gui)(gui)模的(de)(de)(de)工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)項(xiang)目，對(dui)工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)用(yong)(yong)地(di)(di)(di)(di)(di)(di)有不(bu)(bu)同的(de)(de)(de)要(yao)(yao)求(qiu)。這(zhe)就要(yao)(yao)求(qiu)市(shi)、縣國土(tu)(tu)資(zi)源(yuan)部(bu)(bu)門在(zai)擬(ni)訂(ding)工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)用(yong)(yong)地(di)(di)(di)(di)(di)(di)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)方(fang)(fang)案時(shi)，不(bu)(bu)僅要(yao)(yao)考(kao)慮擬(ni)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)土(tu)(tu)地(di)(di)(di)(di)(di)(di)的(de)(de)(de)規(gui)(gui)劃(hua)條(tiao)件(jian)(jian)，還(huan)要(yao)(yao)考(kao)慮本地(di)(di)(di)(di)(di)(di)區的(de)(de)(de)產(chan)(chan)業(ye)(ye)(ye)(ye)(ye)(ye)特點(dian)(dian)(dian)。制(zhi)(zhi)定(ding)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)方(fang)(fang)案時(shi)，國土(tu)(tu)、發展和(he)(he)(he)(he)(he)改(gai)革、規(gui)(gui)劃(hua)、環保(bao)等(deng)相(xiang)關部(bu)(bu)門要(yao)(yao)結合本部(bu)(bu)門職(zhi)能(neng)(neng)職(zhi)責和(he)(he)(he)(he)(he)行業(ye)(ye)(ye)(ye)(ye)(ye)標(biao)(biao)準提出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)明(ming)確意見，市(shi)、縣國土(tu)(tu)資(zi)源(yuan)管理(li)(li)(li)部(bu)(bu)門應(ying)(ying)當依據土(tu)(tu)地(di)(di)(di)(di)(di)(di)利用(yong)(yong)總體(ti)(ti)規(gui)(gui)劃(hua)、城市(shi)規(gui)(gui)劃(hua)、擬(ni)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)地(di)(di)(di)(di)(di)(di)塊周邊產(chan)(chan)業(ye)(ye)(ye)(ye)(ye)(ye)布(bu)局(ju)情況、環保(bao)要(yao)(yao)求(qiu)以(yi)及用(yong)(yong)地(di)(di)(di)(di)(di)(di)預申請的(de)(de)(de)情況，進一(yi)步(bu)細(xi)化擬(ni)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)用(yong)(yong)地(di)(di)(di)(di)(di)(di)的(de)(de)(de)類別(bie)和(he)(he)(he)(he)(he)產(chan)(chan)業(ye)(ye)(ye)(ye)(ye)(ye)類型(xing)，科學(xue)合理(li)(li)(li)地(di)(di)(di)(di)(di)(di)確定(ding)擬(ni)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)用(yong)(yong)地(di)(di)(di)(di)(di)(di)的(de)(de)(de)地(di)(di)(di)(di)(di)(di)塊面積、具體(ti)(ti)用(yong)(yong)途、土(tu)(tu)地(di)(di)(di)(di)(di)(di)使(shi)用(yong)(yong)條(tiao)件(jian)(jian)、產(chan)(chan)業(ye)(ye)(ye)(ye)(ye)(ye)要(yao)(yao)求(qiu)等(deng)內容。出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)方(fang)(fang)案中(zhong)確定(ding)的(de)(de)(de)產(chan)(chan)業(ye)(ye)(ye)(ye)(ye)(ye)類型(xing)、土(tu)(tu)地(di)(di)(di)(di)(di)(di)使(shi)用(yong)(yong)條(tiao)件(jian)(jian)和(he)(he)(he)(he)(he)用(yong)(yong)地(di)(di)(di)(di)(di)(di)規(gui)(gui)模等(deng)，應(ying)(ying)當符合《建設項(xiang)目用(yong)(yong)地(di)(di)(di)(di)(di)(di)預審(shen)管理(li)(li)(li)辦法》和(he)(he)(he)(he)(he)《工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)項(xiang)目建設用(yong)(yong)地(di)(di)(di)(di)(di)(di)控制(zhi)(zhi)指標(biao)(biao)（試行）》的(de)(de)(de)有關要(yao)(yao)求(qiu)。二是在(zai)編(bian)制(zhi)(zhi)工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)用(yong)(yong)地(di)(di)(di)(di)(di)(di)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)文件(jian)(jian)時(shi)，也(ye)要(yao)(yao)體(ti)(ti)現(xian)擬(ni)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)宗地(di)(di)(di)(di)(di)(di)的(de)(de)(de)產(chan)(chan)業(ye)(ye)(ye)(ye)(ye)(ye)特點(dian)(dian)(dian)。各(ge)地(di)(di)(di)(di)(di)(di)在(zai)編(bian)制(zhi)(zhi)工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)用(yong)(yong)地(di)(di)(di)(di)(di)(di)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)文件(jian)(jian)中(zhong)，不(bu)(bu)僅要(yao)(yao)按照(zhao)《招(zhao)標(biao)(biao)拍(pai)(pai)(pai)賣(mai)(mai)掛牌(pai)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)國有土(tu)(tu)地(di)(di)(di)(di)(di)(di)使(shi)用(yong)(yong)權規(gui)(gui)范》的(de)(de)(de)要(yao)(yao)求(qiu)，明(ming)確擬(ni)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)土(tu)(tu)地(di)(di)(di)(di)(di)(di)的(de)(de)(de)一(yi)般(ban)規(gui)(gui)劃(hua)條(tiao)件(jian)(jian)，還(huan)應(ying)(ying)當明(ming)確擬(ni)出(chu)(chu)(chu)(chu)(chu)(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)(rang)地(di)(di)(di)(di)(di)(di)塊的(de)(de)(de)投資(zi)強度要(yao)(yao)求(qiu)、產(chan)(chan)業(ye)(ye)(ye)(ye)(ye)(ye)要(yao)(yao)求(qiu)、具體(ti)(ti)工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)用(yong)(yong)地(di)(di)(di)(di)(di)(di)類別(bie)等(deng)內容。

七、招標出讓的兩種情形：價高者(zhe)得和綜(zong)合(he)評價最優者(zhe)得

11號令(ling)第十四(si)(si)條(tiao)規(gui)(gui)定(ding)(ding)(ding)：對(dui)能(neng)夠(gou)最(zui)(zui)大(da)限度(du)地(di)滿足招標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)文(wen)(wen)件(jian)中(zhong)(zhong)規(gui)(gui)定(ding)(ding)(ding)的(de)(de)各(ge)項(xiang)綜(zong)合(he)(he)評(ping)(ping)(ping)(ping)(ping)價標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)準(zhun)，或者(zhe)能(neng)夠(gou)滿足招標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)文(wen)(wen)件(jian)的(de)(de)實質(zhi)性(xing)要求(qiu)且價格(ge)最(zui)(zui)高(gao)的(de)(de)投(tou)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)人(ren)(ren)(ren)，應當確(que)(que)(que)(que)(que)(que)定(ding)(ding)(ding)為中(zhong)(zhong)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)人(ren)(ren)(ren)。這實質(zhi)上(shang)是(shi)明確(que)(que)(que)(que)(que)(que)了“綜(zong)合(he)(he)條(tiao)件(jian)最(zui)(zui)佳(jia)者(zhe)得”和“價高(gao)者(zhe)得”兩種(zhong)(zhong)評(ping)(ping)(ping)(ping)(ping)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)方(fang)(fang)(fang)(fang)(fang)式(shi)。在招標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)出(chu)讓(rang)活(huo)動中(zhong)(zhong)，對(dui)于采取(qu)“價高(gao)者(zhe)得”的(de)(de)方(fang)(fang)(fang)(fang)(fang)式(shi)評(ping)(ping)(ping)(ping)(ping)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)確(que)(que)(que)(que)(que)(que)定(ding)(ding)(ding)中(zhong)(zhong)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)人(ren)(ren)(ren)的(de)(de)，由(you)(you)于出(chu)讓(rang)方(fang)(fang)(fang)(fang)(fang)在招標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)出(chu)讓(rang)文(wen)(wen)件(jian)中(zhong)(zhong)已經將所有條(tiao)件(jian)公之于眾，所有參(can)加投(tou)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)活(huo)動的(de)(de)人(ren)(ren)(ren)都(dou)是(shi)符合(he)(he)所公布條(tiao)件(jian)的(de)(de)，因(yin)此，采取(qu)這種(zhong)(zhong)評(ping)(ping)(ping)(ping)(ping)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)方(fang)(fang)(fang)(fang)(fang)式(shi)的(de)(de)，可以不(bu)成立評(ping)(ping)(ping)(ping)(ping)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)小組(zu)，而(er)直(zhi)接(jie)根(gen)據(ju)開標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)結(jie)果(guo)，確(que)(que)(que)(que)(que)(que)定(ding)(ding)(ding)有效投(tou)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)價格(ge)最(zui)(zui)高(gao)者(zhe)為中(zhong)(zhong)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)人(ren)(ren)(ren)。在招標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)出(chu)讓(rang)活(huo)動中(zhong)(zhong)，各(ge)地(di)感到，采取(qu)“價高(gao)者(zhe)得”的(de)(de)評(ping)(ping)(ping)(ping)(ping)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)方(fang)(fang)(fang)(fang)(fang)式(shi)確(que)(que)(que)(que)(que)(que)定(ding)(ding)(ding)中(zhong)(zhong)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)人(ren)(ren)(ren)，程序簡單(dan)，公開透(tou)明，有利于防止暗箱操作。總結(jie)各(ge)地(di)實踐，39號令(ling)對(dui)這種(zhong)(zhong)評(ping)(ping)(ping)(ping)(ping)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)方(fang)(fang)(fang)(fang)(fang)式(shi)再次進行(xing)了明確(que)(que)(que)(que)(que)(que)，在第十三條(tiao)第四(si)(si)款規(gui)(gui)定(ding)(ding)(ding)：“按(an)照(zhao)(zhao)(zhao)價高(gao)者(zhe)得的(de)(de)原(yuan)(yuan)則確(que)(que)(que)(que)(que)(que)定(ding)(ding)(ding)中(zhong)(zhong)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)人(ren)(ren)(ren)的(de)(de)，可以不(bu)成立評(ping)(ping)(ping)(ping)(ping)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)小組(zu)，由(you)(you)招標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)主(zhu)持人(ren)(ren)(ren)根(gen)據(ju)開標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)結(jie)果(guo)，確(que)(que)(que)(que)(que)(que)定(ding)(ding)(ding)中(zhong)(zhong)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)人(ren)(ren)(ren)”。因(yin)此，按(an)照(zhao)(zhao)(zhao)39號令(ling)規(gui)(gui)定(ding)(ding)(ding)，招標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)出(chu)讓(rang)包括兩種(zhong)(zhong)評(ping)(ping)(ping)(ping)(ping)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)方(fang)(fang)(fang)(fang)(fang)式(shi)，一(yi)種(zhong)(zhong)是(shi)按(an)照(zhao)(zhao)(zhao)綜(zong)合(he)(he)條(tiao)件(jian)最(zui)(zui)佳(jia)者(zhe)得的(de)(de)原(yuan)(yuan)則進行(xing)評(ping)(ping)(ping)(ping)(ping)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)，在這種(zhong)(zhong)方(fang)(fang)(fang)(fang)(fang)式(shi)下(xia)，評(ping)(ping)(ping)(ping)(ping)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)工作由(you)(you)評(ping)(ping)(ping)(ping)(ping)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)小組(zu)來做，評(ping)(ping)(ping)(ping)(ping)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)小組(zu)按(an)照(zhao)(zhao)(zhao)招標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)文(wen)(wen)件(jian)確(que)(que)(que)(que)(que)(que)定(ding)(ding)(ding)的(de)(de)評(ping)(ping)(ping)(ping)(ping)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)準(zhun)和方(fang)(fang)(fang)(fang)(fang)法，對(dui)投(tou)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)文(wen)(wen)件(jian)進行(xing)評(ping)(ping)(ping)(ping)(ping)審，對(dui)能(neng)夠(gou)最(zui)(zui)大(da)限度(du)地(di)滿足招標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)文(wen)(wen)件(jian)規(gui)(gui)定(ding)(ding)(ding)的(de)(de)各(ge)項(xiang)綜(zong)合(he)(he)評(ping)(ping)(ping)(ping)(ping)價標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)準(zhun)的(de)(de)投(tou)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)人(ren)(ren)(ren)，可以確(que)(que)(que)(que)(que)(que)定(ding)(ding)(ding)為中(zhong)(zhong)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)人(ren)(ren)(ren)；另(ling)一(yi)種(zhong)(zhong)是(shi)按(an)照(zhao)(zhao)(zhao)價高(gao)者(zhe)得的(de)(de)原(yuan)(yuan)則進行(xing)評(ping)(ping)(ping)(ping)(ping)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)，這種(zhong)(zhong)評(ping)(ping)(ping)(ping)(ping)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)方(fang)(fang)(fang)(fang)(fang)式(shi)不(bu)要求(qiu)成立評(ping)(ping)(ping)(ping)(ping)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)小組(zu)，可以直(zhi)接(jie)由(you)(you)招標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)主(zhu)持人(ren)(ren)(ren)根(gen)據(ju)開標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)結(jie)果(guo)，將能(neng)夠(gou)滿足招標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)文(wen)(wen)件(jian)的(de)(de)實質(zhi)性(xing)要求(qiu)且價格(ge)最(zui)(zui)高(gao)的(de)(de)投(tou)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)人(ren)(ren)(ren)，確(que)(que)(que)(que)(que)(que)定(ding)(ding)(ding)為中(zhong)(zhong)標(biao)(biao)(biao)(biao)(biao)(biao)(biao)(biao)人(ren)(ren)(ren)。

  八、終(zhong)止拍賣的情形:強(qiang)調充分公開而非(fei)人數(shu)

11號(hao)令第十六條(tiao)(tiao)規(gui)(gui)定(ding)(ding)：“競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)不(bu)足(zu)(zu)三(san)(san)(san)(san)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)，或(huo)者競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)的(de)(de)最(zui)高(gao)(gao)應(ying)價(jia)(jia)未達到(dao)底(di)價(jia)(jia)時，主(zhu)持人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)應(ying)當終(zhong)止(zhi)拍(pai)(pai)(pai)賣”。這一(yi)(yi)(yi)(yi)規(gui)(gui)定(ding)(ding)明(ming)確(que)(que)了終(zhong)止(zhi)拍(pai)(pai)(pai)賣的(de)(de)兩(liang)種(zhong)情況。競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)最(zui)高(gao)(gao)應(ying)價(jia)(jia)低于底(di)價(jia)(jia)即終(zhong)止(zhi)拍(pai)(pai)(pai)賣，實質上(shang)是不(bu)得低于底(di)價(jia)(jia)出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)國(guo)有(you)(you)土地(di)(di)(di)，各地(di)(di)(di)對(dui)(dui)此的(de)(de)認識是相同(tong)的(de)(de)，問題主(zhu)要(yao)集(ji)中(zhong)在(zai)對(dui)(dui)“競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)不(bu)足(zu)(zu)三(san)(san)(san)(san)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)”的(de)(de)理解上(shang)。一(yi)(yi)(yi)(yi)些地(di)(di)(di)方(fang)認為，“競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)不(bu)足(zu)(zu)三(san)(san)(san)(san)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)”是指(zhi)一(yi)(yi)(yi)(yi)宗(zong)(zong)地(di)(di)(di)的(de)(de)競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)不(bu)能(neng)少于三(san)(san)(san)(san)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)。其實，11號(hao)令規(gui)(gui)定(ding)(ding)的(de)(de)“競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)不(bu)足(zu)(zu)三(san)(san)(san)(san)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)”是指(zhi)一(yi)(yi)(yi)(yi)場(chang)(chang)拍(pai)(pai)(pai)賣會的(de)(de)競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)不(bu)足(zu)(zu)三(san)(san)(san)(san)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)，而(er)不(bu)是指(zhi)一(yi)(yi)(yi)(yi)宗(zong)(zong)地(di)(di)(di)的(de)(de)競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)不(bu)足(zu)(zu)三(san)(san)(san)(san)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)。而(er)且，《拍(pai)(pai)(pai)賣法》并沒有(you)(you)對(dui)(dui)競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)的(de)(de)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)數進(jin)行(xing)規(gui)(gui)定(ding)(ding)。更為重要(yao)的(de)(de)是，拍(pai)(pai)(pai)賣作為一(yi)(yi)(yi)(yi)種(zhong)市(shi)場(chang)(chang)交易方(fang)式，其核心是充(chong)(chong)分(fen)(fen)(fen)公(gong)(gong)(gong)(gong)(gong)開(kai)競(jing)(jing)(jing)(jing)(jing)(jing)爭(zheng)，就(jiu)土地(di)(di)(di)拍(pai)(pai)(pai)賣而(er)言(yan)，競(jing)(jing)(jing)(jing)(jing)(jing)爭(zheng)并不(bu)是在(zai)拍(pai)(pai)(pai)賣現場(chang)(chang)才開(kai)始(shi),實際上(shang)從發布(bu)拍(pai)(pai)(pai)賣出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)公(gong)(gong)(gong)(gong)(gong)告(gao)(gao)(gao)起競(jing)(jing)(jing)(jing)(jing)(jing)爭(zheng)就(jiu)開(kai)始(shi)了,因此,關鍵是能(neng)否(fou)做到(dao)充(chong)(chong)分(fen)(fen)(fen)公(gong)(gong)(gong)(gong)(gong)開(kai),即充(chong)(chong)分(fen)(fen)(fen)公(gong)(gong)(gong)(gong)(gong)開(kai)出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)計劃、充(chong)(chong)分(fen)(fen)(fen)公(gong)(gong)(gong)(gong)(gong)開(kai)出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)信息(公(gong)(gong)(gong)(gong)(gong)告(gao)(gao)(gao))、充(chong)(chong)分(fen)(fen)(fen)公(gong)(gong)(gong)(gong)(gong)開(kai)出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)程序、充(chong)(chong)分(fen)(fen)(fen)公(gong)(gong)(gong)(gong)(gong)開(kai)競(jing)(jing)(jing)(jing)(jing)(jing)價(jia)(jia)、充(chong)(chong)分(fen)(fen)(fen)公(gong)(gong)(gong)(gong)(gong)開(kai)結果。信息充(chong)(chong)分(fen)(fen)(fen)公(gong)(gong)(gong)(gong)(gong)開(kai)了，該(gai)知(zhi)(zhi)道(dao)的(de)(de)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)都知(zhi)(zhi)道(dao)了,結果即使(shi)一(yi)(yi)(yi)(yi)宗(zong)(zong)地(di)(di)(di)只有(you)(you)一(yi)(yi)(yi)(yi)個(ge)(ge)或(huo)兩(liang)個(ge)(ge)競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)有(you)(you)意愿來參(can)加(jia)(jia)競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)，這種(zhong)拍(pai)(pai)(pai)賣行(xing)為也是充(chong)(chong)分(fen)(fen)(fen)市(shi)場(chang)(chang)化、完全競(jing)(jing)(jing)(jing)(jing)(jing)爭(zheng)的(de)(de)結果，反之，如果出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)信息不(bu)充(chong)(chong)分(fen)(fen)(fen)公(gong)(gong)(gong)(gong)(gong)開(kai)或(huo)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)為設(she)(she)定(ding)(ding)了種(zhong)種(zhong)條(tiao)(tiao)件(jian)限制(zhi)競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)參(can)加(jia)(jia)招標(biao)拍(pai)(pai)(pai)賣掛(gua)牌(pai)活動，即使(shi)一(yi)(yi)(yi)(yi)宗(zong)(zong)地(di)(di)(di)拍(pai)(pai)(pai)賣現場(chang)(chang)來了一(yi)(yi)(yi)(yi)萬(wan)個(ge)(ge)競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)參(can)加(jia)(jia)競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)，但(dan)場(chang)(chang)外還有(you)(you)很多有(you)(you)資格(ge)參(can)加(jia)(jia)競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)的(de)(de)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)因為不(bu)了解出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)信息或(huo)因出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)設(she)(she)置的(de)(de)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)為限制(zhi)條(tiao)(tiao)件(jian)限制(zhi)而(er)無法進(jin)場(chang)(chang)參(can)加(jia)(jia)競(jing)(jing)(jing)(jing)(jing)(jing)爭(zheng)，這樣(yang)的(de)(de)拍(pai)(pai)(pai)賣也是非充(chong)(chong)分(fen)(fen)(fen)競(jing)(jing)(jing)(jing)(jing)(jing)爭(zheng)、非市(shi)場(chang)(chang)化配置的(de)(de)。因此，39號(hao)令首先從六個(ge)(ge)方(fang)面強(qiang)調出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)信息的(de)(de)充(chong)(chong)分(fen)(fen)(fen)公(gong)(gong)(gong)(gong)(gong)開(kai)，包括(kuo)公(gong)(gong)(gong)(gong)(gong)開(kai)出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)計劃、公(gong)(gong)(gong)(gong)(gong)開(kai)發布(bu)出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)公(gong)(gong)(gong)(gong)(gong)告(gao)(gao)(gao)、公(gong)(gong)(gong)(gong)(gong)開(kai)出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)程序、集(ji)體確(que)(que)定(ding)(ding)出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)底(di)價(jia)(jia)、公(gong)(gong)(gong)(gong)(gong)開(kai)競(jing)(jing)(jing)(jing)(jing)(jing)價(jia)(jia)、公(gong)(gong)(gong)(gong)(gong)開(kai)出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)結果；其次，嚴禁人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)為設(she)(she)定(ding)(ding)限制(zhi)條(tiao)(tiao)件(jian)，明(ming)確(que)(que)規(gui)(gui)定(ding)(ding)：“中(zhong)華人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)民共(gong)和國(guo)境內外的(de)(de)自然人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)、法人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)和其他組織，除(chu)(chu)法律、法規(gui)(gui)另有(you)(you)規(gui)(gui)定(ding)(ding)外，均可(ke)申(shen)請參(can)加(jia)(jia)國(guo)有(you)(you)建設(she)(she)用(yong)地(di)(di)(di)使(shi)用(yong)權(quan)招標(biao)拍(pai)(pai)(pai)賣掛(gua)牌(pai)出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)活動。出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)在(zai)招標(biao)拍(pai)(pai)(pai)賣掛(gua)牌(pai)出(chu)(chu)(chu)讓(rang)(rang)(rang)(rang)(rang)公(gong)(gong)(gong)(gong)(gong)告(gao)(gao)(gao)中(zhong)不(bu)得設(she)(she)定(ding)(ding)影響公(gong)(gong)(gong)(gong)(gong)平、公(gong)(gong)(gong)(gong)(gong)正競(jing)(jing)(jing)(jing)(jing)(jing)爭(zheng)的(de)(de)限制(zhi)條(tiao)(tiao)件(jian)。”在(zai)強(qiang)化上(shang)述充(chong)(chong)分(fen)(fen)(fen)公(gong)(gong)(gong)(gong)(gong)開(kai)措(cuo)施的(de)(de)基礎上(shang)，39號(hao)令不(bu)再(zai)強(qiang)調人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)數要(yao)求，刪(shan)除(chu)(chu)了11號(hao)令“競(jing)(jing)(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)不(bu)足(zu)(zu)三(san)(san)(san)(san)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)”的(de)(de)規(gui)(gui)定(ding)(ding)。

  九、掛牌申請時(shi)間(jian)、公(gong)告(gao)時(shi)間(jian)和(he)掛牌時(shi)間(jian):要正確理(li)解

11號(hao)令在(zai)(zai)(zai)(zai)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)公(gong)告(gao)時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)、公(gong)告(gao)內(nei)容(rong)、掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)程序、掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)結果等多處對掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)出(chu)讓(rang)(rang)(rang)進(jin)行了(le)(le)(le)規(gui)定(ding)，確立了(le)(le)(le)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)出(chu)讓(rang)(rang)(rang)制度(du)，并(bing)在(zai)(zai)(zai)(zai)實(shi)踐中取得(de)良好的效果。但由于(yu)相關規(gui)定(ding)過于(yu)原(yuan)則，一(yi)些地(di)方理解不(bu)(bu)一(yi)致。很多地(di)方提出(chu),11號(hao)令規(gui)定(ding)的掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)不(bu)(bu)得(de)少于(yu)10個工(gong)作(zuo)日(ri)(ri)，太長了(le)(le)(le)，認為(wei)(wei)(wei)如果掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)出(chu)讓(rang)(rang)(rang)只(zhi)有(you)(you)一(yi)個競(jing)買申(shen)請(qing)(qing)(qing)(qing)人(ren)報價，掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)10個工(gong)作(zuo)日(ri)(ri)沒(mei)有(you)(you)意(yi)義(yi)。我們(men)認為(wei)(wei)(wei)，這(zhe)(zhe)主要是(shi)對掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)出(chu)讓(rang)(rang)(rang)的申(shen)請(qing)(qing)(qing)(qing)時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)認識不(bu)(bu)全面造成(cheng)的。如某地(di)國土資源局掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)出(chu)讓(rang)(rang)(rang)宗地(di)A，2007年(nian)10月(yue)(yue)8日(ri)(ri)發(fa)布(bu)公(gong)告(gao)，明(ming)確掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)為(wei)(wei)(wei)10月(yue)(yue)29日(ri)(ri)至(zhi)(zhi)11月(yue)(yue)9日(ri)(ri)，同時(shi)(shi)(shi)該局規(gui)定(ding)申(shen)請(qing)(qing)(qing)(qing)時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)為(wei)(wei)(wei)10月(yue)(yue)10日(ri)(ri)至(zhi)(zhi)10月(yue)(yue)29日(ri)(ri)，即10月(yue)(yue)29日(ri)(ri)為(wei)(wei)(wei)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)申(shen)請(qing)(qing)(qing)(qing)截(jie)(jie)止(zhi)時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)。此(ci)后，即使有(you)(you)申(shen)請(qing)(qing)(qing)(qing)人(ren)符合其(qi)(qi)他所有(you)(you)條(tiao)件(jian)，也被(bei)認為(wei)(wei)(wei)超過了(le)(le)(le)申(shen)請(qing)(qing)(qing)(qing)截(jie)(jie)止(zhi)時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)而(er)被(bei)拒之門外。顯然(ran)，這(zhe)(zhe)種理解混淆了(le)(le)(le)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)、公(gong)告(gao)發(fa)布(bu)時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)與掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)申(shen)請(qing)(qing)(qing)(qing)時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)的不(bu)(bu)同含義(yi)。其(qi)(qi)實(shi)，11號(hao)令并(bing)沒(mei)有(you)(you)規(gui)定(ding)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)申(shen)請(qing)(qing)(qing)(qing)時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)必須(xu)在(zai)(zai)(zai)(zai)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)開始日(ri)(ri)前(qian)截(jie)(jie)止(zhi)。我們(men)認為(wei)(wei)(wei)，為(wei)(wei)(wei)保證(zheng)充(chong)分公(gong)開和充(chong)分競(jing)爭，在(zai)(zai)(zai)(zai)具(ju)體(ti)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)出(chu)讓(rang)(rang)(rang)活動中，出(chu)讓(rang)(rang)(rang)人(ren)完全可(ke)(ke)以(yi)在(zai)(zai)(zai)(zai)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)期間(jian)(jian)(jian)(jian)(jian)繼續接(jie)受(shou)(shou)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)申(shen)請(qing)(qing)(qing)(qing)，只(zhi)要在(zai)(zai)(zai)(zai)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)截(jie)(jie)止(zhi)前(qian)留有(you)(you)足夠(gou)的審(shen)查時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)即可(ke)(ke)，這(zhe)(zhe)也正是(shi)規(gui)定(ding)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)不(bu)(bu)少于(yu)10個工(gong)作(zuo)日(ri)(ri)的意(yi)義(yi)所在(zai)(zai)(zai)(zai)。因(yin)此(ci)，39號(hao)令對掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)申(shen)請(qing)(qing)(qing)(qing)截(jie)(jie)止(zhi)時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)作(zuo)了(le)(le)(le)進(jin)一(yi)步明(ming)確，在(zai)(zai)(zai)(zai)第(di)十一(yi)條(tiao)規(gui)定(ding)：掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)出(chu)讓(rang)(rang)(rang)的，出(chu)讓(rang)(rang)(rang)公(gong)告(gao)中規(gui)定(ding)的申(shen)請(qing)(qing)(qing)(qing)截(jie)(jie)止(zhi)時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)，應(ying)當為(wei)(wei)(wei)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)出(chu)讓(rang)(rang)(rang)結束(shu)日(ri)(ri)前(qian)2天,即留下(xia)一(yi)定(ding)的審(shen)查時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)即可(ke)(ke)。仍(reng)以(yi)某地(di)宗地(di)A的掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)出(chu)讓(rang)(rang)(rang)為(wei)(wei)(wei)例(li)，2007年(nian)10月(yue)(yue)8日(ri)(ri)發(fa)布(bu)公(gong)告(gao)，明(ming)確掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)為(wei)(wei)(wei)10月(yue)(yue)29日(ri)(ri)至(zhi)(zhi)11月(yue)(yue)7日(ri)(ri)(節假日(ri)(ri)照常掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai))，則掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)申(shen)請(qing)(qing)(qing)(qing)時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)至(zhi)(zhi)少為(wei)(wei)(wei)10月(yue)(yue)10日(ri)(ri)至(zhi)(zhi)11月(yue)(yue)5日(ri)(ri)，即10個掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)日(ri)(ri)中的前(qian)8日(ri)(ri)，仍(reng)可(ke)(ke)以(yi)繼續接(jie)受(shou)(shou)申(shen)請(qing)(qing)(qing)(qing)。這(zhe)(zhe)樣，就為(wei)(wei)(wei)潛在(zai)(zai)(zai)(zai)競(jing)買人(ren)隨時(shi)(shi)(shi)提出(chu)競(jing)買申(shen)請(qing)(qing)(qing)(qing)提供了(le)(le)(le)盡可(ke)(ke)能多的時(shi)(shi)(shi)間(jian)(jian)(jian)(jian)(jian)，出(chu)讓(rang)(rang)(rang)方在(zai)(zai)(zai)(zai)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)期間(jian)(jian)(jian)(jian)(jian)仍(reng)可(ke)(ke)以(yi)接(jie)受(shou)(shou)新的申(shen)請(qing)(qing)(qing)(qing)人(ren)申(shen)請(qing)(qing)(qing)(qing)，使潛在(zai)(zai)(zai)(zai)競(jing)買人(ren)可(ke)(ke)以(yi)隨時(shi)(shi)(shi)加入競(jing)買。

另(ling)外，11號(hao)(hao)令(ling)第(di)十八條規定(ding)“掛(gua)(gua)牌(pai)(pai)時(shi)(shi)間(jian)(jian)不(bu)得少(shao)于(yu)(yu)10個工作(zuo)日”。各地在(zai)操作(zuo)中(zhong)，為(wei)保持掛(gua)(gua)牌(pai)(pai)出(chu)讓(rang)的(de)連續(xu)性，往往是采用連續(xu)掛(gua)(gua)牌(pai)(pai)10日,即連續(xu)10日中(zhong)的(de)休(xiu)息(xi)(xi)日照(zhao)常(chang)掛(gua)(gua)牌(pai)(pai),照(zhao)常(chang)接(jie)受(shou)掛(gua)(gua)牌(pai)(pai)報價。為(wei)此,39號(hao)(hao)令(ling)修(xiu)改(gai)了第(di)十八條，明(ming)確(que)：掛(gua)(gua)牌(pai)(pai)時(shi)(shi)間(jian)(jian)不(bu)得少(shao)于(yu)(yu)10日。因此,今(jin)后各地在(zai)確(que)定(ding)掛(gua)(gua)牌(pai)(pai)時(shi)(shi)間(jian)(jian)時(shi)(shi)，應(ying)(ying)為(wei)不(bu)少(shao)于(yu)(yu)連續(xu)的(de)10日，其中(zhong)遇(yu)到節假(jia)(jia)日應(ying)(ying)當照(zhao)常(chang)掛(gua)(gua)牌(pai)(pai)、照(zhao)常(chang)接(jie)受(shou)掛(gua)(gua)牌(pai)(pai)報價,或(huo)節假(jia)(jia)日照(zhao)常(chang)休(xiu)息(xi)(xi)但(dan)要相應(ying)(ying)順延掛(gua)(gua)牌(pai)(pai)時(shi)(shi)間(jian)(jian)。例如(ru)，可(ke)以(yi)規定(ding)某宗地掛(gua)(gua)牌(pai)(pai)出(chu)讓(rang)時(shi)(shi)間(jian)(jian)為(wei)2007年10月30日至11月8日，其中(zhong)節假(jia)(jia)日照(zhao)常(chang)受(shou)理競買申請和(he)掛(gua)(gua)牌(pai)(pai)報價；也可(ke)以(yi)規定(ding)某宗地的(de)掛(gua)(gua)牌(pai)(pai)出(chu)讓(rang)時(shi)(shi)間(jian)(jian)為(wei)2007年10月30日至11月12日，其中(zhong)，節假(jia)(jia)日照(zhao)常(chang)休(xiu)息(xi)(xi)。

十、掛(gua)牌出讓期限截止:掛(gua)牌主持(chi)人主持(chi)確定

11號令第(di)19條對(dui)(dui)“掛牌(pai)(pai)(pai)(pai)出(chu)讓(rang)期(qi)限(xian)(xian)截(jie)止(zhi)(zhi)(zhi)(zhi)”時(shi)(shi)可能(neng)發生的(de)情況(kuang)(kuang)作了具(ju)體規定：“在(zai)掛牌(pai)(pai)(pai)(pai)期(qi)限(xian)(xian)截(jie)止(zhi)(zhi)(zhi)(zhi)時(shi)(shi)仍有兩(liang)(liang)個(ge)(ge)(ge)或(huo)者(zhe)(zhe)(zhe)兩(liang)(liang)個(ge)(ge)(ge)以上(shang)(shang)的(de)競(jing)(jing)買(mai)(mai)人(ren)要(yao)求報(bao)價(jia)的(de)，出(chu)讓(rang)人(ren)應當對(dui)(dui)掛牌(pai)(pai)(pai)(pai)宗地(di)進行現(xian)場競(jing)(jing)價(jia)，出(chu)價(jia)最高(gao)者(zhe)(zhe)(zhe)為競(jing)(jing)得人(ren)”。該(gai)(gai)條款是為了保(bao)證充分競(jing)(jing)爭(zheng)，防止(zhi)(zhi)(zhi)(zhi)競(jing)(jing)買(mai)(mai)申(shen)請人(ren)利用時(shi)(shi)間差規避他(ta)人(ren)競(jing)(jing)爭(zheng)而提(ti)出(chu)的(de)。各地(di)在(zai)具(ju)體的(de)掛牌(pai)(pai)(pai)(pai)出(chu)讓(rang)活(huo)動中(zhong)，對(dui)(dui)該(gai)(gai)條款的(de)理(li)解不(bu)一(yi)致(zhi)，一(yi)些地(di)方(fang)在(zai)出(chu)讓(rang)公告(gao)中(zhong)將掛牌(pai)(pai)(pai)(pai)出(chu)讓(rang)截(jie)止(zhi)(zhi)(zhi)(zhi)時(shi)(shi)間規定為“X日X點(dian)X分”或(huo)“X日X點(dian)整”，結(jie)果(guo)出(chu)現(xian)了接近(jin)掛牌(pai)(pai)(pai)(pai)時(shi)(shi)點(dian)時(shi)(shi)競(jing)(jing)買(mai)(mai)人(ren)要(yao)求報(bao)價(jia)但(dan)沒有時(shi)(shi)間填寫報(bao)價(jia)單的(de)情況(kuang)(kuang)，并因(yin)此產(chan)生了一(yi)些糾紛(fen)。此外(wai)，一(yi)些地(di)方(fang)將11號令19條“在(zai)掛牌(pai)(pai)(pai)(pai)期(qi)限(xian)(xian)截(jie)止(zhi)(zhi)(zhi)(zhi)時(shi)(shi)仍有兩(liang)(liang)個(ge)(ge)(ge)或(huo)者(zhe)(zhe)(zhe)兩(liang)(liang)個(ge)(ge)(ge)以上(shang)(shang)的(de)競(jing)(jing)買(mai)(mai)人(ren)要(yao)求報(bao)價(jia)的(de)”情形，理(li)解為在(zai)掛牌(pai)(pai)(pai)(pai)期(qi)限(xian)(xian)截(jie)止(zhi)(zhi)(zhi)(zhi)時(shi)(shi)除了已(yi)被確認為最高(gao)報(bao)價(jia)的(de)競(jing)(jing)買(mai)(mai)人(ren)外(wai)，還必(bi)須有兩(liang)(liang)個(ge)(ge)(ge)以上(shang)(shang)的(de)競(jing)(jing)買(mai)(mai)人(ren)提(ti)出(chu)報(bao)價(jia)要(yao)求，這(zhe)種理(li)解也是不(bu)對(dui)(dui)的(de)。從最簡(jian)單的(de)道理(li)上(shang)(shang)講，在(zai)存(cun)在(zai)多(duo)個(ge)(ge)(ge)競(jing)(jing)買(mai)(mai)人(ren)報(bao)價(jia)的(de)情況(kuang)(kuang)下，掛牌(pai)(pai)(pai)(pai)期(qi)限(xian)(xian)截(jie)止(zhi)(zhi)(zhi)(zhi)時(shi)(shi)，已(yi)經有了最高(gao)報(bao)價(jia)人(ren)，這(zhe)時(shi)(shi)，只(zhi)要(yao)再有一(yi)個(ge)(ge)(ge)人(ren)有報(bao)價(jia)要(yao)求的(de)，連同最高(gao)報(bao)價(jia)者(zhe)(zhe)(zhe)，就屬(shu)于(yu)有兩(liang)(liang)個(ge)(ge)(ge)以上(shang)(shang)競(jing)(jing)買(mai)(mai)人(ren)要(yao)求報(bao)價(jia)的(de)情形。

為(wei)避免糾紛和理解混(hun)亂，39號(hao)令十九條(tiao)(tiao)第(di)五款(kuan)對掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)截(jie)止(zhi)重新進行(xing)了明確，規(gui)定(ding)(ding)(ding)：“掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)截(jie)止(zhi)應當由(you)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)主持人(ren)(ren)(ren)主持確定(ding)(ding)(ding)。掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)期限屆(jie)滿(man)，掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)主持人(ren)(ren)(ren)現(xian)(xian)(xian)場(chang)宣布最(zui)高報(bao)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)及其(qi)報(bao)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)者(zhe)(zhe)(zhe)，并(bing)詢問(wen)競(jing)(jing)買(mai)(mai)人(ren)(ren)(ren)是(shi)否(fou)愿(yuan)意(yi)(yi)繼續(xu)(xu)(xu)競(jing)(jing)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)。有(you)競(jing)(jing)買(mai)(mai)人(ren)(ren)(ren)表示愿(yuan)意(yi)(yi)繼續(xu)(xu)(xu)競(jing)(jing)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)的(de)(de)，掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)出(chu)(chu)讓轉入現(xian)(xian)(xian)場(chang)競(jing)(jing)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)，通過現(xian)(xian)(xian)場(chang)競(jing)(jing)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)確定(ding)(ding)(ding)競(jing)(jing)得(de)人(ren)(ren)(ren)；掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)主持人(ren)(ren)(ren)連續(xu)(xu)(xu)三(san)(san)次報(bao)出(chu)(chu)最(zui)高掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)格，沒有(you)競(jing)(jing)買(mai)(mai)人(ren)(ren)(ren)表示愿(yuan)意(yi)(yi)繼續(xu)(xu)(xu)競(jing)(jing)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)的(de)(de)，按(an)(an)照(zhao)下列規(gui)定(ding)(ding)(ding)確定(ding)(ding)(ding)是(shi)否(fou)成交：（一）在掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)期限內(nei)只有(you)一個(ge)競(jing)(jing)買(mai)(mai)人(ren)(ren)(ren)報(bao)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)，且報(bao)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)不(bu)低(di)于底價(jia)(jia)(jia)(jia)(jia)(jia)(jia)，并(bing)符合(he)其(qi)他條(tiao)(tiao)件的(de)(de)，掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)成交；（二(er)）在掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)期限內(nei)有(you)兩個(ge)或(huo)(huo)者(zhe)(zhe)(zhe)兩個(ge)以(yi)上的(de)(de)競(jing)(jing)買(mai)(mai)人(ren)(ren)(ren)報(bao)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)的(de)(de)，出(chu)(chu)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)最(zui)高者(zhe)(zhe)(zhe)為(wei)競(jing)(jing)得(de)人(ren)(ren)(ren)；報(bao)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)相同的(de)(de)，先提交報(bao)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)單者(zhe)(zhe)(zhe)為(wei)競(jing)(jing)得(de)人(ren)(ren)(ren)，但報(bao)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)低(di)于底價(jia)(jia)(jia)(jia)(jia)(jia)(jia)者(zhe)(zhe)(zhe)除外；（三(san)(san)）在掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)期限內(nei)無應價(jia)(jia)(jia)(jia)(jia)(jia)(jia)者(zhe)(zhe)(zhe)或(huo)(huo)者(zhe)(zhe)(zhe)競(jing)(jing)買(mai)(mai)人(ren)(ren)(ren)的(de)(de)報(bao)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)均低(di)于底價(jia)(jia)(jia)(jia)(jia)(jia)(jia)或(huo)(huo)者(zhe)(zhe)(zhe)均不(bu)符合(he)其(qi)他條(tiao)(tiao)件的(de)(de)，掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)不(bu)成交”。按(an)(an)照(zhao)這一規(gui)定(ding)(ding)(ding)，在掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)截(jie)止(zhi)時，由(you)土(tu)地招標拍賣掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)主持人(ren)(ren)(ren)掌握掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)現(xian)(xian)(xian)場(chang)，可以(yi)根據掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)報(bao)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)情況確定(ding)(ding)(ding)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)成交、掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)終止(zhi)或(huo)(huo)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)轉為(wei)現(xian)(xian)(xian)場(chang)競(jing)(jing)價(jia)(jia)(jia)(jia)(jia)(jia)(jia)，有(you)效地避免了競(jing)(jing)買(mai)(mai)人(ren)(ren)(ren)與(yu)(yu)掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)人(ren)(ren)(ren)、競(jing)(jing)買(mai)(mai)人(ren)(ren)(ren)與(yu)(yu)競(jing)(jing)買(mai)(mai)人(ren)(ren)(ren)之間對掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)結(jie)果產生的(de)(de)理解不(bu)一致甚至產生糾紛，有(you)利于掛(gua)(gua)(gua)(gua)(gua)(gua)牌(pai)(pai)(pai)(pai)(pai)(pai)(pai)活動的(de)(de)順利開展(zhan)。

此外，鑒于進入(ru)掛(gua)(gua)牌(pai)(pai)出讓程序后，對競(jing)買人(ren)(ren)(ren)報價進行(xing)確認(ren)、更新顯示(shi)掛(gua)(gua)牌(pai)(pai)價格、以及在掛(gua)(gua)牌(pai)(pai)截止時(shi)間確定(ding)(ding)競(jing)得人(ren)(ren)(ren)等工作(zuo)，需要由(you)具體(ti)人(ren)(ren)(ren)員(yuan)主(zhu)持進行(xing)，因此，39號令第十七條對掛(gua)(gua)牌(pai)(pai)程序中(zhong)不準確的表述進行(xing)了完善(shan)，規定(ding)(ding)：競(jing)買人(ren)(ren)(ren)填寫報價單報價；掛(gua)(gua)牌(pai)(pai)主(zhu)持人(ren)(ren)(ren)確認(ren)該報價后，更新顯示(shi)掛(gua)(gua)牌(pai)(pai)價格；掛(gua)(gua)牌(pai)(pai)主(zhu)持人(ren)(ren)(ren)在掛(gua)(gua)牌(pai)(pai)公告規定(ding)(ding)的掛(gua)(gua)牌(pai)(pai)截止時(shi)間確定(ding)(ding)競(jing)得人(ren)(ren)(ren)。

十一、投(tou)標(biao)、競買保證(zheng)金:階段(duan)不同性質不同

保(bao)證金(jin)制度是保(bao)障市(shi)(shi)場(chang)安全(quan)的(de)(de)基礎之一(yi)。為(wei)防(fang)范交易(yi)風險，防(fang)止(zhi)違(wei)約(yue)(yue)并確保(bao)合約(yue)(yue)的(de)(de)完整性，許多(duo)交易(yi)活動均設立保(bao)證金(jin)制度。從(cong)一(yi)般意義上講，保(bao)證金(jin)是一(yi)項履約(yue)(yue)擔保(bao)金(jin)，證明買(mai)(mai)方(fang)(fang)或賣方(fang)(fang)的(de)(de)誠意，所(suo)有(you)的(de)(de)買(mai)(mai)方(fang)(fang)或賣方(fang)(fang)均須交存保(bao)證金(jin)方(fang)(fang)能(neng)進入市(shi)(shi)場(chang)。2002年發(fa)布的(de)(de)11號令，確立了國有(you)土(tu)地(di)使用(yong)權招標(biao)(biao)拍賣掛牌(pai)出(chu)讓中(zhong)的(de)(de)投標(biao)(biao)、競買(mai)(mai)保(bao)證金(jin)制度。在(zai)招標(biao)(biao)拍賣掛牌(pai)出(chu)讓活動中(zhong)，對保(bao)證金(jin)的(de)(de)性質一(yi)直存在(zai)不同的(de)(de)認(ren)識。一(yi)種觀點認(ren)為(wei)，投標(biao)(biao)、競買(mai)(mai)保(bao)證金(jin)是定金(jin)，另一(yi)種觀點認(ren)為(wei)是出(chu)讓金(jin)。這兩種觀點都是片面的(de)(de)。

實際上，由于招標(biao)(biao)(biao)(biao)拍(pai)(pai)賣(mai)(mai)掛(gua)(gua)(gua)牌(pai)出(chu)(chu)讓(rang)(rang)(rang)工作(zuo)由不(bu)(bu)同階(jie)段組成(cheng)(cheng)(cheng)，招標(biao)(biao)(biao)(biao)拍(pai)(pai)賣(mai)(mai)掛(gua)(gua)(gua)牌(pai)活(huo)動(dong)(dong)持續(xu)過程(cheng)較長，因此(ci)，投(tou)(tou)(tou)標(biao)(biao)(biao)(biao)、競(jing)(jing)(jing)(jing)買(mai)(mai)(mai)保(bao)(bao)證(zheng)金(jin)(jin)(jin)(jin)(jin)的(de)(de)(de)性(xing)質(zhi)不(bu)(bu)是(shi)恒(heng)定(ding)(ding)的(de)(de)(de)，在(zai)(zai)招標(biao)(biao)(biao)(biao)拍(pai)(pai)賣(mai)(mai)掛(gua)(gua)(gua)牌(pai)出(chu)(chu)讓(rang)(rang)(rang)的(de)(de)(de)不(bu)(bu)同階(jie)段，性(xing)質(zhi)不(bu)(bu)同。在(zai)(zai)拍(pai)(pai)賣(mai)(mai)（掛(gua)(gua)(gua)牌(pai)）成(cheng)(cheng)(cheng)交或(huo)(huo)中(zhong)(zhong)(zhong)(zhong)標(biao)(biao)(biao)(biao)前，投(tou)(tou)(tou)標(biao)(biao)(biao)(biao)、競(jing)(jing)(jing)(jing)買(mai)(mai)(mai)保(bao)(bao)證(zheng)金(jin)(jin)(jin)(jin)(jin)是(shi)意向用(yong)地者(zhe)參加招拍(pai)(pai)掛(gua)(gua)(gua)活(huo)動(dong)(dong)的(de)(de)(de)資格條件，是(shi)門檻,并不(bu)(bu)是(shi)定(ding)(ding)金(jin)(jin)(jin)(jin)(jin)；在(zai)(zai)拍(pai)(pai)賣(mai)(mai)（掛(gua)(gua)(gua)牌(pai)）成(cheng)(cheng)(cheng)交或(huo)(huo)中(zhong)(zhong)(zhong)(zhong)標(biao)(biao)(biao)(biao)后(hou)(hou)，中(zhong)(zhong)(zhong)(zhong)標(biao)(biao)(biao)(biao)人(ren)(ren)(ren)、競(jing)(jing)(jing)(jing)得(de)人(ren)(ren)(ren)支(zhi)付的(de)(de)(de)投(tou)(tou)(tou)標(biao)(biao)(biao)(biao)、競(jing)(jing)(jing)(jing)買(mai)(mai)(mai)保(bao)(bao)證(zheng)金(jin)(jin)(jin)(jin)(jin)，在(zai)(zai)中(zhong)(zhong)(zhong)(zhong)標(biao)(biao)(biao)(biao)或(huo)(huo)競(jing)(jing)(jing)(jing)得(de)后(hou)(hou)轉作(zuo)受(shou)讓(rang)(rang)(rang)地塊的(de)(de)(de)定(ding)(ding)金(jin)(jin)(jin)(jin)(jin)。其他投(tou)(tou)(tou)標(biao)(biao)(biao)(biao)人(ren)(ren)(ren)、競(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)交納的(de)(de)(de)投(tou)(tou)(tou)標(biao)(biao)(biao)(biao)、競(jing)(jing)(jing)(jing)買(mai)(mai)(mai)保(bao)(bao)證(zheng)金(jin)(jin)(jin)(jin)(jin)，出(chu)(chu)讓(rang)(rang)(rang)人(ren)(ren)(ren)應在(zai)(zai)招拍(pai)(pai)掛(gua)(gua)(gua)活(huo)動(dong)(dong)結束后(hou)(hou) 5 個工作(zuo)日內予(yu)以退還(huan)；國(guo)有土地出(chu)(chu)讓(rang)(rang)(rang)合(he)同簽訂(ding)后(hou)(hou)，競(jing)(jing)(jing)(jing)得(de)人(ren)(ren)(ren)最(zui)初繳納的(de)(de)(de)投(tou)(tou)(tou)標(biao)(biao)(biao)(biao)、競(jing)(jing)(jing)(jing)買(mai)(mai)(mai)保(bao)(bao)證(zheng)金(jin)(jin)(jin)(jin)(jin)轉為(wei)土地出(chu)(chu)讓(rang)(rang)(rang)價(jia)款。因此(ci)，39號令對(dui)投(tou)(tou)(tou)標(biao)(biao)(biao)(biao)、競(jing)(jing)(jing)(jing)買(mai)(mai)(mai)保(bao)(bao)證(zheng)金(jin)(jin)(jin)(jin)(jin)的(de)(de)(de)性(xing)質(zhi)進一(yi)(yi)步作(zuo)了明確。在(zai)(zai)第(di)二十條規定(ding)(ding)：“以招標(biao)(biao)(biao)(biao)、拍(pai)(pai)賣(mai)(mai)或(huo)(huo)者(zhe)掛(gua)(gua)(gua)牌(pai)方式(shi)確定(ding)(ding)中(zhong)(zhong)(zhong)(zhong)標(biao)(biao)(biao)(biao)人(ren)(ren)(ren)、競(jing)(jing)(jing)(jing)得(de)人(ren)(ren)(ren)后(hou)(hou)，中(zhong)(zhong)(zhong)(zhong)標(biao)(biao)(biao)(biao)人(ren)(ren)(ren)、競(jing)(jing)(jing)(jing)得(de)人(ren)(ren)(ren)支(zhi)付的(de)(de)(de)投(tou)(tou)(tou)標(biao)(biao)(biao)(biao)、競(jing)(jing)(jing)(jing)買(mai)(mai)(mai)保(bao)(bao)證(zheng)金(jin)(jin)(jin)(jin)(jin)，轉作(zuo)受(shou)讓(rang)(rang)(rang)地塊的(de)(de)(de)定(ding)(ding)金(jin)(jin)(jin)(jin)(jin)”。第(di)二十一(yi)(yi)條規定(ding)(ding)：“中(zhong)(zhong)(zhong)(zhong)標(biao)(biao)(biao)(biao)人(ren)(ren)(ren)、競(jing)(jing)(jing)(jing)得(de)人(ren)(ren)(ren)應當按照(zhao)中(zhong)(zhong)(zhong)(zhong)標(biao)(biao)(biao)(biao)通(tong)知(zhi)書(shu)或(huo)(huo)者(zhe)成(cheng)(cheng)(cheng)交確認書(shu)約定(ding)(ding)的(de)(de)(de)時間，與出(chu)(chu)讓(rang)(rang)(rang)人(ren)(ren)(ren)簽訂(ding)國(guo)有建設用(yong)地使用(yong)權出(chu)(chu)讓(rang)(rang)(rang)合(he)同。中(zhong)(zhong)(zhong)(zhong)標(biao)(biao)(biao)(biao)人(ren)(ren)(ren)、競(jing)(jing)(jing)(jing)得(de)人(ren)(ren)(ren)支(zhi)付的(de)(de)(de)投(tou)(tou)(tou)標(biao)(biao)(biao)(biao)、競(jing)(jing)(jing)(jing)買(mai)(mai)(mai)保(bao)(bao)證(zheng)金(jin)(jin)(jin)(jin)(jin)抵作(zuo)土地出(chu)(chu)讓(rang)(rang)(rang)價(jia)款；其他投(tou)(tou)(tou)標(biao)(biao)(biao)(biao)人(ren)(ren)(ren)、競(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)支(zhi)付的(de)(de)(de)投(tou)(tou)(tou)標(biao)(biao)(biao)(biao)、競(jing)(jing)(jing)(jing)買(mai)(mai)(mai)保(bao)(bao)證(zheng)金(jin)(jin)(jin)(jin)(jin)，出(chu)(chu)讓(rang)(rang)(rang)人(ren)(ren)(ren)必須在(zai)(zai)招標(biao)(biao)(biao)(biao)拍(pai)(pai)賣(mai)(mai)掛(gua)(gua)(gua)牌(pai)活(huo)動(dong)(dong)結束后(hou)(hou)5 個工作(zuo)日內予(yu)以退還(huan)，不(bu)(bu)計利息”。也就是(shi)說(shuo)，在(zai)(zai)中(zhong)(zhong)(zhong)(zhong)標(biao)(biao)(biao)(biao)或(huo)(huo)競(jing)(jing)(jing)(jing)得(de)前，投(tou)(tou)(tou)標(biao)(biao)(biao)(biao)、競(jing)(jing)(jing)(jing)買(mai)(mai)(mai)保(bao)(bao)證(zheng)金(jin)(jin)(jin)(jin)(jin)只是(shi)競(jing)(jing)(jing)(jing)買(mai)(mai)(mai)人(ren)(ren)(ren)參加招標(biao)(biao)(biao)(biao)拍(pai)(pai)賣(mai)(mai)掛(gua)(gua)(gua)牌(pai)活(huo)動(dong)(dong)的(de)(de)(de)資格條件，中(zhong)(zhong)(zhong)(zhong)標(biao)(biao)(biao)(biao)或(huo)(huo)競(jing)(jing)(jing)(jing)得(de)后(hou)(hou)，投(tou)(tou)(tou)標(biao)(biao)(biao)(biao)、競(jing)(jing)(jing)(jing)買(mai)(mai)(mai)保(bao)(bao)證(zheng)金(jin)(jin)(jin)(jin)(jin)轉變(bian)(bian)性(xing)質(zhi)成(cheng)(cheng)(cheng)為(wei)定(ding)(ding)金(jin)(jin)(jin)(jin)(jin)，簽訂(ding)出(chu)(chu)讓(rang)(rang)(rang)合(he)同后(hou)(hou)，再轉變(bian)(bian)性(xing)質(zhi)成(cheng)(cheng)(cheng)為(wei)出(chu)(chu)讓(rang)(rang)(rang)價(jia)款的(de)(de)(de)一(yi)(yi)部分。

十二、繳(jiao)納出(chu)讓金(jin)和發放(fang)建設(she)(she)用(yong)地(di)(di)使用(yong)權證(zheng)書(shu):按(an)(an)宗(zong)地(di)(di)出(chu)讓、按(an)(an)宗(zong)地(di)(di)簽訂出(chu)讓合同、按(an)(an)宗(zong)地(di)(di)繳(jiao)清(qing)出(chu)讓價款、按(an)(an)宗(zong)地(di)(di)發放(fang)建設(she)(she)用(yong)地(di)(di)使用(yong)權證(zheng)

11號令(ling)第二(er)(er)十三(san)條明(ming)確(que)(que)(que)規定(ding)(ding)：受讓(rang)(rang)人依照(zhao)國(guo)(guo)有(you)(you)(you)土(tu)地(di)(di)(di)使(shi)用(yong)權(quan)(quan)出(chu)(chu)(chu)(chu)讓(rang)(rang)合同(tong)約(yue)定(ding)(ding)繳(jiao)清全(quan)(quan)部(bu)(bu)(bu)出(chu)(chu)(chu)(chu)讓(rang)(rang)金(jin)后，依法申請辦(ban)理土(tu)地(di)(di)(di)登記，領取土(tu)地(di)(di)(di)使(shi)用(yong)權(quan)(quan)證(zheng)(zheng)書(shu)，取得(de)土(tu)地(di)(di)(di)使(shi)用(yong)權(quan)(quan)。這(zhe)一(yi)規定(ding)(ding)已明(ming)確(que)(que)(que)受讓(rang)(rang)方必須在(zai)(zai)繳(jiao)清全(quan)(quan)部(bu)(bu)(bu)出(chu)(chu)(chu)(chu)讓(rang)(rang)金(jin)后才能領取土(tu)地(di)(di)(di)使(shi)用(yong)證(zheng)(zheng)。但近年(nian)來(lai)，一(yi)些地(di)(di)(di)方存在(zai)(zai)受讓(rang)(rang)人只(zhi)繳(jiao)了(le)部(bu)(bu)(bu)分出(chu)(chu)(chu)(chu)讓(rang)(rang)金(jin)就分割取得(de)了(le)土(tu)地(di)(di)(di)使(shi)用(yong)權(quan)(quan)證(zheng)(zheng)，再(zai)用(yong)該土(tu)地(di)(di)(di)使(shi)用(yong)權(quan)(quan)證(zheng)(zheng)申請土(tu)地(di)(di)(di)抵押貸款。這(zhe)給及(ji)時交清全(quan)(quan)部(bu)(bu)(bu)出(chu)(chu)(chu)(chu)讓(rang)(rang)金(jin)埋下了(le)隱患，同(tong)時為開(kai)發(fa)商(shang)以(yi)少量資金(jin)囤積土(tu)地(di)(di)(di)留下余地(di)(di)(di)，而一(yi)旦形勢不(bu)利(li)于開(kai)發(fa)建設(she)(she)(she)，就造成土(tu)地(di)(di)(di)閑(xian)置和工程爛(lan)尾(wei)。土(tu)地(di)(di)(di)不(bu)能及(ji)時開(kai)發(fa)利(li)用(yong)，不(bu)能形成有(you)(you)(you)效的住房(fang)供應(ying)，也增(zeng)加了(le)金(jin)融風險(xian)，也不(bu)利(li)于節約(yue)集約(yue)用(yong)地(di)(di)(di)。為此(ci)，39號令(ling)對土(tu)地(di)(di)(di)出(chu)(chu)(chu)(chu)讓(rang)(rang)金(jin)繳(jiao)納和建設(she)(she)(she)用(yong)地(di)(di)(di)使(shi)用(yong)權(quan)(quan)證(zheng)(zheng)書(shu)發(fa)放進行了(le)重新(xin)明(ming)確(que)(que)(que)，第二(er)(er)十三(san)條規定(ding)(ding)：“受讓(rang)(rang)人依照(zhao)國(guo)(guo)有(you)(you)(you)建設(she)(she)(she)用(yong)地(di)(di)(di)使(shi)用(yong)權(quan)(quan)出(chu)(chu)(chu)(chu)讓(rang)(rang)合同(tong)的約(yue)定(ding)(ding)付(fu)清全(quan)(quan)部(bu)(bu)(bu)國(guo)(guo)有(you)(you)(you)建設(she)(she)(she)用(yong)地(di)(di)(di)使(shi)用(yong)權(quan)(quan)出(chu)(chu)(chu)(chu)讓(rang)(rang)金(jin)后，應(ying)當(dang)依法申請辦(ban)理土(tu)地(di)(di)(di)登記，領取國(guo)(guo)有(you)(you)(you)建設(she)(she)(she)用(yong)地(di)(di)(di)使(shi)用(yong)權(quan)(quan)證(zheng)(zheng)書(shu)。未按合同(tong)約(yue)定(ding)(ding)繳(jiao)清全(quan)(quan)部(bu)(bu)(bu)出(chu)(chu)(chu)(chu)讓(rang)(rang)金(jin)的，不(bu)得(de)發(fa)放國(guo)(guo)有(you)(you)(you)建設(she)(she)(she)用(yong)地(di)(di)(di)使(shi)用(yong)權(quan)(quan)證(zheng)(zheng)書(shu)，也不(bu)得(de)按出(chu)(chu)(chu)(chu)讓(rang)(rang)金(jin)繳(jiao)納比例分割發(fa)放國(guo)(guo)有(you)(you)(you)建設(she)(she)(she)用(yong)地(di)(di)(di)使(shi)用(yong)權(quan)(quan)證(zheng)(zheng)書(shu)。

39號(hao)令發(fa)(fa)(fa)布后(hou)(hou)，一(yi)些媒體報道，39號(hao)令實施后(hou)(hou)，開(kai)發(fa)(fa)(fa)商(shang)拿(na)(na)(na)地(di)(di)(di)必須(xu)(xu)一(yi)次繳(jiao)清(qing)全(quan)部出(chu)讓(rang)(rang)(rang)(rang)金(jin)，而(er)不(bu)(bu)(bu)能(neng)進行土地(di)(di)(di)“分(fen)(fen)(fen)(fen)期(qi)付(fu)(fu)款”。這個說(shuo)法(fa)(fa)其實是(shi)(shi)誤(wu)讀了該(gai)條(tiao)款的內容。《城市房地(di)(di)(di)產管(guan)(guan)理(li)法(fa)(fa)》第十五(wu)條(tiao)明(ming)(ming)(ming)確(que)規定(ding)(ding)：土地(di)(di)(di)使(shi)用(yong)(yong)者(zhe)應當(dang)按(an)(an)(an)照(zhao)出(chu)讓(rang)(rang)(rang)(rang)合同(tong)(tong)(tong)約(yue)定(ding)(ding)支(zhi)(zhi)(zhi)付(fu)(fu)出(chu)讓(rang)(rang)(rang)(rang)金(jin)。2000年國(guo)土資(zi)源(yuan)部和國(guo)家工商(shang)行政(zheng)(zheng)管(guan)(guan)理(li)總局聯合發(fa)(fa)(fa)布的《國(guo)有土地(di)(di)(di)使(shi)用(yong)(yong)權(quan)出(chu)讓(rang)(rang)(rang)(rang)合同(tong)(tong)(tong)》（示范文本）明(ming)(ming)(ming)確(que)規定(ding)(ding)，出(chu)讓(rang)(rang)(rang)(rang)金(jin)支(zhi)(zhi)(zhi)付(fu)(fu)方式由出(chu)讓(rang)(rang)(rang)(rang)人與(yu)受讓(rang)(rang)(rang)(rang)人雙方約(yue)定(ding)(ding)，既(ji)可以(yi)約(yue)定(ding)(ding)一(yi)次性付(fu)(fu)清(qing)，也(ye)可以(yi)約(yue)定(ding)(ding)分(fen)(fen)(fen)(fen)期(qi)支(zhi)(zhi)(zhi)付(fu)(fu)。如果出(chu)讓(rang)(rang)(rang)(rang)合同(tong)(tong)(tong)約(yue)定(ding)(ding)分(fen)(fen)(fen)(fen)期(qi)支(zhi)(zhi)(zhi)付(fu)(fu)，受讓(rang)(rang)(rang)(rang)方就(jiu)分(fen)(fen)(fen)(fen)期(qi)付(fu)(fu)款，約(yue)定(ding)(ding)一(yi)次支(zhi)(zhi)(zhi)付(fu)(fu)的，就(jiu)一(yi)次性付(fu)(fu)清(qing)。但(dan)是(shi)(shi)，不(bu)(bu)(bu)管(guan)(guan)是(shi)(shi)一(yi)次性支(zhi)(zhi)(zhi)付(fu)(fu)還是(shi)(shi)分(fen)(fen)(fen)(fen)期(qi)支(zhi)(zhi)(zhi)付(fu)(fu)，都必須(xu)(xu)在(zai)繳(jiao)清(qing)該(gai)宗(zong)(zong)地(di)(di)(di)的全(quan)部出(chu)讓(rang)(rang)(rang)(rang)金(jin)后(hou)(hou)，才可以(yi)拿(na)(na)(na)到(dao)土地(di)(di)(di)使(shi)用(yong)(yong)權(quan)證(zheng)(zheng)，未(wei)繳(jiao)清(qing)就(jiu)不(bu)(bu)(bu)能(neng)拿(na)(na)(na)證(zheng)(zheng)，也(ye)不(bu)(bu)(bu)能(neng)按(an)(an)(an)繳(jiao)納出(chu)讓(rang)(rang)(rang)(rang)金(jin)繳(jiao)納的比例(li)分(fen)(fen)(fen)(fen)割(ge)發(fa)(fa)(fa)證(zheng)(zheng)。也(ye)就(jiu)是(shi)(shi)說(shuo)，開(kai)發(fa)(fa)(fa)商(shang)拿(na)(na)(na)地(di)(di)(di)可以(yi)按(an)(an)(an)合同(tong)(tong)(tong)約(yue)定(ding)(ding)分(fen)(fen)(fen)(fen)期(qi)付(fu)(fu)款，但(dan)不(bu)(bu)(bu)可以(yi)分(fen)(fen)(fen)(fen)期(qi)拿(na)(na)(na)證(zheng)(zheng)。另外，必須(xu)(xu)明(ming)(ming)(ming)確(que)的是(shi)(shi)，根據土地(di)(di)(di)管(guan)(guan)理(li)相關法(fa)(fa)律，凡是(shi)(shi)土地(di)(di)(di)出(chu)讓(rang)(rang)(rang)(rang)，必須(xu)(xu)以(yi)宗(zong)(zong)地(di)(di)(di)為(wei)單(dan)位，即按(an)(an)(an)宗(zong)(zong)地(di)(di)(di)擬定(ding)(ding)出(chu)讓(rang)(rang)(rang)(rang)方案，按(an)(an)(an)宗(zong)(zong)地(di)(di)(di)組織出(chu)讓(rang)(rang)(rang)(rang)，按(an)(an)(an)宗(zong)(zong)地(di)(di)(di)簽(qian)訂出(chu)讓(rang)(rang)(rang)(rang)合同(tong)(tong)(tong)，按(an)(an)(an)宗(zong)(zong)地(di)(di)(di)發(fa)(fa)(fa)放(fang)土地(di)(di)(di)使(shi)用(yong)(yong)證(zheng)(zheng)。現行法(fa)(fa)律不(bu)(bu)(bu)允許在(zai)未(wei)繳(jiao)清(qing)出(chu)讓(rang)(rang)(rang)(rang)金(jin)前將整宗(zong)(zong)地(di)(di)(di)再分(fen)(fen)(fen)(fen)割(ge)為(wei)若干宗(zong)(zong)地(di)(di)(di)，分(fen)(fen)(fen)(fen)割(ge)發(fa)(fa)(fa)放(fang)土地(di)(di)(di)使(shi)用(yong)(yong)證(zheng)(zheng)。因此，無(wu)論是(shi)(shi)11號(hao)令還是(shi)(shi)39號(hao)令，在(zai)出(chu)讓(rang)(rang)(rang)(rang)金(jin)繳(jiao)納和發(fa)(fa)(fa)證(zheng)(zheng)上，都是(shi)(shi)對現行土地(di)(di)(di)管(guan)(guan)理(li)法(fa)(fa)律政(zheng)(zheng)策(ce)的再次明(ming)(ming)(ming)確(que)，而(er)非對法(fa)(fa)律的突破。　　

39號(hao)(hao)令盡管只是(shi)按照《物(wu)權法》和相關法規規定對11號(hao)(hao)令進行了(le)發展和完善(shan)，并不(bu)是(shi)針對市(shi)場調(diao)控(kong)出(chu)臺的(de)新政(zheng)策(ce)，但從客(ke)觀(guan)上講，39號(hao)(hao)令強調(diao)公(gong)開(kai)、公(gong)平、公(gong)正的(de)市(shi)場配置機制(zhi)，包括重(zhong)申按宗(zong)地出(chu)讓(rang)、按宗(zong)地簽訂合同、繳(jiao)清宗(zong)地出(chu)讓(rang)價(jia)款才能(neng)發證(zheng)(zheng)、不(bu)得(de)分(fen)割發證(zheng)(zheng)等規定，有利于(yu)市(shi)場機制(zhi)的(de)發揮(hui),防止開(kai)發商囤地等，有助(zhu)于(yu)宏(hong)觀(guan)調(diao)控(kong)政(zheng)策(ce)的(de)落(luo)實。

法治動態檢索

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