cciia.org.cn 2020-7-27 14:51:18 人民法(fa)院新聞傳媒總社
改(gai)革開放以來，通過大力推進(jin)產(chan)權(quan)(quan)(quan)(quan)制(zhi)度改(gai)革，我國(guo)(guo)基本形成(cheng)了歸屬清晰、權(quan)(quan)(quan)(quan)責(ze)明(ming)確、保(bao)(bao)護(hu)(hu)(hu)(hu)嚴格(ge)、流轉順(shun)暢(chang)的(de)現代產(chan)權(quan)(quan)(quan)(quan)制(zhi)度與產(chan)權(quan)(quan)(quan)(quan)保(bao)(bao)護(hu)(hu)(hu)(hu)法律框架，全(quan)社會(hui)產(chan)權(quan)(quan)(quan)(quan)保(bao)(bao)護(hu)(hu)(hu)(hu)意識不斷增(zeng)強(qiang)，保(bao)(bao)護(hu)(hu)(hu)(hu)力度不斷增(zeng)大。但是長期(qi)以來，由于觀念、認識等多方面因素影響，產(chan)權(quan)(quan)(quan)(quan)保(bao)(bao)護(hu)(hu)(hu)(hu)領(ling)域(yu)仍然存在(zai)(zai)平(ping)等保(bao)(bao)護(hu)(hu)(hu)(hu)各(ge)種經(jing)濟主體的(de)理念未深入(ru)人心、保(bao)(bao)護(hu)(hu)(hu)(hu)產(chan)權(quan)(quan)(quan)(quan)的(de)機制(zhi)體系尚不完(wan)備等問題，在(zai)(zai)行政強(qiang)制(zhi)、征收拆遷等領(ling)域(yu)，侵害私有(you)產(chan)權(quan)(quan)(quan)(quan)的(de)違法行為(wei)仍然存在(zai)(zai)，導致行政爭議(yi)的(de)發(fa)生。為(wei)進(jin)一(yi)步貫徹習近(jin)平(ping)新時代中(zhong)國(guo)(guo)特色社會(hui)主義(yi)思想(xiang)和(he)黨的(de)十九大精神(shen)，落實(shi)黨中(zhong)央、國(guo)(guo)務院關于完(wan)善產(chan)權(quan)(quan)(quan)(quan)保(bao)(bao)護(hu)(hu)(hu)(hu)制(zhi)度依法保(bao)(bao)護(hu)(hu)(hu)(hu)產(chan)權(quan)(quan)(quan)(quan)的(de)重大部署，更好營(ying)造平(ping)等保(bao)(bao)護(hu)(hu)(hu)(hu)各(ge)種所有(you)制(zhi)經(jing)濟產(chan)權(quan)(quan)(quan)(quan)和(he)合法權(quan)(quan)(quan)(quan)益的(de)法治環境，進(jin)一(yi)步發(fa)揮(hui)司法服務保(bao)(bao)障經(jing)濟高質(zhi)量發(fa)展的(de)作用，加強(qiang)對(dui)產(chan)權(quan)(quan)(quan)(quan)保(bao)(bao)護(hu)(hu)(hu)(hu)的(de)司法監督，促(cu)進(jin)提高全(quan)國(guo)(guo)法院產(chan)權(quan)(quan)(quan)(quan)保(bao)(bao)護(hu)(hu)(hu)(hu)行政案(an)件辦理質(zhi)效，最(zui)高人民法院近(jin)期(qi)從全(quan)國(guo)(guo)范圍(wei)擷選了一(yi)批產(chan)權(quan)(quan)(quan)(quan)保(bao)(bao)護(hu)(hu)(hu)(hu)行政訴訟典(dian)型(xing)案(an)例(li)，今(jin)天(tian)正(zheng)式向社會(hui)公布。
該批典型案(an)(an)例(li)具有(you)(you)較(jiao)強的(de)(de)(de)針對(dui)性和指導(dao)性，堅持對(dui)產權(quan)(quan)(quan)的(de)(de)(de)平(ping)等保(bao)護(hu)和全面保(bao)護(hu)，明確(que)對(dui)行政(zheng)(zheng)機關(guan)(guan)(guan)(guan)侵犯產權(quan)(quan)(quan)行為(wei)的(de)(de)(de)合(he)法(fa)(fa)性審查原(yuan)則，提示(shi)各種(zhong)所有(you)(you)制主體(ti)產權(quan)(quan)(quan)受到(dao)違法(fa)(fa)行政(zheng)(zheng)行為(wei)侵害時的(de)(de)(de)救濟途(tu)徑(jing)。期望(wang)(wang)通(tong)過(guo)這(zhe)些(xie)(xie)案(an)(an)例(li)的(de)(de)(de)發(fa)(fa)布，有(you)(you)效推廣相關(guan)(guan)(guan)(guan)法(fa)(fa)院的(de)(de)(de)有(you)(you)益經驗，提高(gao)產權(quan)(quan)(quan)保(bao)護(hu)精準度，加快(kuai)建立產權(quan)(quan)(quan)保(bao)護(hu)長效機制；期望(wang)(wang)通(tong)過(guo)這(zhe)些(xie)(xie)案(an)(an)例(li)的(de)(de)(de)發(fa)(fa)布，促進(jin)提升行政(zheng)(zheng)機關(guan)(guan)(guan)(guan)依法(fa)(fa)行政(zheng)(zheng)水平(ping)，推動完善守信踐諾(nuo)機制，促進(jin)構建更(geng)加和諧的(de)(de)(de)官民關(guan)(guan)(guan)(guan)系，增(zeng)強各類市場(chang)主體(ti)的(de)(de)(de)恒(heng)心信心；期望(wang)(wang)通(tong)過(guo)這(zhe)些(xie)(xie)案(an)(an)例(li)的(de)(de)(de)發(fa)(fa)布，積極傳遞司法(fa)(fa)正能量，引導(dao)社會公眾依法(fa)(fa)維護(hu)自身權(quan)(quan)(quan)益，使產權(quan)(quan)(quan)的(de)(de)(de)平(ping)等保(bao)護(hu)、全面保(bao)護(hu)、依法(fa)(fa)保(bao)護(hu)觀念更(geng)加深入(ru)人心，營造公平(ping)、公正、透(tou)明、穩定的(de)(de)(de)法(fa)(fa)治環境。
下一(yi)(yi)(yi)(yi)步，各(ge)級人民(min)法(fa)院(yuan)將(jiang)高舉習近(jin)平(ping)新(xin)時代(dai)中國(guo)特色社(she)會主義思想偉大旗幟(zhi)，深入學習黨的十九大和(he)(he)十九屆(jie)歷次全(quan)會精神，全(quan)面落實黨中央(yang)關(guan)于推進依法(fa)行(xing)政、建設法(fa)治(zhi)政府的一(yi)(yi)(yi)(yi)系列(lie)重大決策部署，緊(jin)緊(jin)圍繞統籌推進“五位一(yi)(yi)(yi)(yi)體(ti)”總(zong)體(ti)布(bu)局和(he)(he)協調推進“四個全(quan)面”戰略布(bu)局，牢固樹(shu)立(li)和(he)(he)貫徹落實新(xin)發展理念(nian)，充分發揮司法(fa)職能作用，進一(yi)(yi)(yi)(yi)步完善現代(dai)產(chan)(chan)權(quan)制度(du)，提(ti)高產(chan)(chan)權(quan)保護(hu)法(fa)治(zhi)化水(shui)平(ping)。各(ge)級人民(min)法(fa)院(yuan)將(jiang)堅(jian)持(chi)依法(fa)妥善審(shen)理涉產(chan)(chan)權(quan)保護(hu)行(xing)政案(an)件，監督支持(chi)行(xing)政機關(guan)依法(fa)行(xing)政，依法(fa)有效保護(hu)各(ge)種所(suo)有制經濟主體(ti)和(he)(he)公(gong)民(min)的財產(chan)(chan)權(quan)，增強人民(min)群眾的安(an)全(quan)感與獲得感，增強各(ge)類經濟主體(ti)創(chuang)業創(chuang)新(xin)活力，維護(hu)社(she)會公(gong)平(ping)正義和(he)(he)國(guo)家長治(zhi)久安(an)。
最高人民法院產權保護行政訴訟典型案例
一、海口博泰隆房地產開發有限公司訴海口市人民政府有償收回國有土地使用權案
（一）基本案情
2007年3月，海口(kou)博(bo)(bo)泰隆房地(di)(di)(di)(di)產開(kai)發(fa)有(you)(you)限公司（以(yi)下(xia)簡(jian)稱博(bo)(bo)泰隆公司）通過公開(kai)掛牌出讓方式取(qu)得642351.28平方米國(guo)有(you)(you)土(tu)(tu)(tu)(tu)(tu)地(di)(di)(di)(di)使(shi)(shi)用權(quan)(quan)。2012年，原(yuan)海口(kou)市(shi)(shi)國(guo)土(tu)(tu)(tu)(tu)(tu)資源局(ju)（以(yi)下(xia)簡(jian)稱市(shi)(shi)國(guo)土(tu)(tu)(tu)(tu)(tu)局(ju)）作(zuo)(zuo)出的(de)(de)多份(fen)函件中，認為(wei)涉(she)(she)案(an)(an)土(tu)(tu)(tu)(tu)(tu)地(di)(di)(di)(di)存在權(quan)(quan)屬糾紛和(he)(he)(he)征地(di)(di)(di)(di)遺留問(wen)(wen)題(ti)，暫緩報(bao)建，待問(wen)(wen)題(ti)解決后再進(jin)(jin)行(xing)申(shen)報(bao)。海口(kou)市(shi)(shi)人民(min)政(zheng)府(fu)(fu)（以(yi)下(xia)簡(jian)稱市(shi)(shi)政(zheng)府(fu)(fu)）亦(yi)認可(ke)涉(she)(she)案(an)(an)土(tu)(tu)(tu)(tu)(tu)地(di)(di)(di)(di)未開(kai)發(fa)是政(zheng)府(fu)(fu)原(yuan)因(yin)所致。2015年，海南省人民(min)政(zheng)府(fu)(fu)作(zuo)(zuo)出的(de)(de)瓊府(fu)(fu)〔2015〕24號《關于進(jin)(jin)一(yi)步(bu)做(zuo)好(hao)閑(xian)置(zhi)(zhi)土(tu)(tu)(tu)(tu)(tu)地(di)(di)(di)(di)處置(zhi)(zhi)工(gong)作(zuo)(zuo)的(de)(de)通知》（以(yi)下(xia)簡(jian)稱24號文）規(gui)定(ding)，因(yin)政(zheng)府(fu)(fu)原(yuan)因(yin)造(zao)成(cheng)土(tu)(tu)(tu)(tu)(tu)地(di)(di)(di)(di)閑(xian)置(zhi)(zhi)的(de)(de)，以(yi)協(xie)(xie)議方式收(shou)(shou)回閑(xian)置(zhi)(zhi)土(tu)(tu)(tu)(tu)(tu)地(di)(di)(di)(di)使(shi)(shi)用權(quan)(quan)的(de)(de)價(jia)格(ge)(ge)，可(ke)以(yi)按(an)照(zhao)(zhao)土(tu)(tu)(tu)(tu)(tu)地(di)(di)(di)(di)使(shi)(shi)用權(quan)(quan)人已(yi)繳(jiao)交(jiao)的(de)(de)土(tu)(tu)(tu)(tu)(tu)地(di)(di)(di)(di)出讓價(jia)款、前(qian)期(qi)合理投入(ru)(ru)以(yi)及自土(tu)(tu)(tu)(tu)(tu)地(di)(di)(di)(di)出讓金(jin)繳(jiao)交(jiao)之(zhi)日和(he)(he)(he)前(qian)期(qi)合理投入(ru)(ru)資金(jin)之(zhi)日至收(shou)(shou)回土(tu)(tu)(tu)(tu)(tu)地(di)(di)(di)(di)使(shi)(shi)用權(quan)(quan)期(qi)間利息總額(e)予(yu)以(yi)確(que)定(ding)；如該價(jia)格(ge)(ge)高于市(shi)(shi)場評估價(jia)格(ge)(ge)的(de)(de)，按(an)照(zhao)(zhao)市(shi)(shi)場評估價(jia)格(ge)(ge)協(xie)(xie)議收(shou)(shou)回土(tu)(tu)(tu)(tu)(tu)地(di)(di)(di)(di)使(shi)(shi)用權(quan)(quan)。2017年，市(shi)(shi)國(guo)土(tu)(tu)(tu)(tu)(tu)局(ju)告知博(bo)(bo)泰隆公司涉(she)(she)案(an)(an)土(tu)(tu)(tu)(tu)(tu)地(di)(di)(di)(di)構成(cheng)閑(xian)置(zhi)(zhi)土(tu)(tu)(tu)(tu)(tu)地(di)(di)(di)(di)并擬有(you)(you)償(chang)收(shou)(shou)回涉(she)(she)案(an)(an)土(tu)(tu)(tu)(tu)(tu)地(di)(di)(di)(di)使(shi)(shi)用權(quan)(quan)，但雙(shuang)方協(xie)(xie)商未達成(cheng)一(yi)致意(yi)見。2018年1月3日，市(shi)(shi)政(zheng)府(fu)(fu)向博(bo)(bo)泰隆公司作(zuo)(zuo)出了收(shou)(shou)地(di)(di)(di)(di)決定(ding)書，以(yi)促(cu)進(jin)(jin)國(guo)民(min)經濟和(he)(he)(he)社會發(fa)展等(deng)公共利益(yi)需要為(wei)由，決定(ding)收(shou)(shou)回涉(she)(she)案(an)(an)土(tu)(tu)(tu)(tu)(tu)地(di)(di)(di)(di)的(de)(de)國(guo)有(you)(you)建設用地(di)(di)(di)(di)使(shi)(shi)用權(quan)(quan)，并給予(yu)適(shi)當補償(chang)，“適(shi)當補償(chang)標準(zhun)按(an)24號文的(de)(de)規(gui)定(ding)執行(xing)”。博(bo)(bo)泰隆公司不(bu)服，提起(qi)行(xing)政(zheng)訴訟，請求撤銷該決定(ding)書。
（二）裁判結果
海南省海口市中(zhong)級(ji)人民法院一審認為，涉(she)案(an)土(tu)地(di)因(yin)政府原因(yin)導致閑(xian)置，市政府因(yin)促進國(guo)(guo)民經濟和社會(hui)發展(zhan)公共利(li)(li)益(yi)需要(yao)，決(jue)定(ding)(ding)有(you)(you)償(chang)(chang)收(shou)回涉(she)案(an)土(tu)地(di)，認定(ding)(ding)事實清(qing)楚(chu)。24號(hao)(hao)文規(gui)定(ding)(ding)的(de)有(you)(you)償(chang)(chang)收(shou)回國(guo)(guo)有(you)(you)土(tu)地(di)使用(yong)權的(de)補償(chang)(chang)標準適用(yong)于(yu)因(yin)政府原因(yin)導致土(tu)地(di)閑(xian)置、政府部門與土(tu)地(di)使用(yong)者協商(shang)一致的(de)情形。涉(she)案(an)土(tu)地(di)因(yin)公共利(li)(li)益(yi)需要(yao)被收(shou)回，卻適用(yong)24號(hao)(hao)文中(zhong)相關閑(xian)置土(tu)地(di)標準給予補償(chang)(chang)，屬于(yu)適用(yong)法律錯誤。遂(sui)判決(jue)撤銷市政府作出的(de)收(shou)地(di)決(jue)定(ding)(ding)書中(zhong)“適當(dang)補償(chang)(chang)標準按照24號(hao)(hao)文的(de)規(gui)定(ding)(ding)執行”的(de)內容(rong)，并駁回博泰(tai)隆公司(si)的(de)其他訴(su)訟(song)請求。雙方當(dang)事人均提出上訴(su)。
海(hai)(hai)南(nan)(nan)省高級人(ren)(ren)民法(fa)院二審(shen)認為，土地(di)(di)(di)同時存在因(yin)(yin)政府(fu)(fu)(fu)原(yuan)因(yin)(yin)造成(cheng)閑置(zhi)(zhi)和(he)因(yin)(yin)公共利(li)益(yi)(yi)需(xu)(xu)要(yao)(yao)使(shi)用(yong)土地(di)(di)(di)的(de)(de)(de)(de)情形下，政府(fu)(fu)(fu)既可通過閑置(zhi)(zhi)土地(di)(di)(di)處(chu)置(zhi)(zhi)程序有(you)償收回(hui)土地(di)(di)(di)使(shi)用(yong)權(quan)(quan)，也可通過因(yin)(yin)公共利(li)益(yi)(yi)需(xu)(xu)要(yao)(yao)國家(jia)依(yi)法(fa)有(you)償提前收回(hui)程序收回(hui)土地(di)(di)(di)使(shi)用(yong)權(quan)(quan)。為公共利(li)益(yi)(yi)需(xu)(xu)要(yao)(yao)而收回(hui)國有(you)土地(di)(di)(di)使(shi)用(yong)權(quan)(quan)的(de)(de)(de)(de)，對使(shi)用(yong)權(quan)(quan)人(ren)(ren)應(ying)當(dang)(dang)給予適(shi)當(dang)(dang)補償。該(gai)款規定的(de)(de)(de)(de)“適(shi)當(dang)(dang)補償”應(ying)當(dang)(dang)是公平(ping)合(he)理(li)的(de)(de)(de)(de)補償，即綜合(he)考(kao)慮被(bei)收回(hui)土地(di)(di)(di)的(de)(de)(de)(de)性質、用(yong)途(tu)、區位、評估方法(fa)、閑置(zhi)(zhi)原(yuan)因(yin)(yin)等(deng)因(yin)(yin)素，參考(kao)市(shi)場價(jia)格予以補償。涉(she)案收地(di)(di)(di)決定書簡單以土地(di)(di)(di)使(shi)用(yong)權(quan)(quan)人(ren)(ren)已繳交(jiao)的(de)(de)(de)(de)土地(di)(di)(di)出(chu)讓價(jia)款、前期合(he)理(li)投入以及相應(ying)的(de)(de)(de)(de)利(li)息總額(e)進行補償欠妥，且不符合(he)自然資(zi)源部辦公廳(ting)自然資(zi)辦函(han)〔2018〕1903號(hao)函(han)（以下簡稱(cheng)自然資(zi)源部1903號(hao)函(han)）和(he)海(hai)(hai)南(nan)(nan)省人(ren)(ren)民政府(fu)(fu)(fu)瓊府(fu)(fu)(fu)〔2019〕12號(hao)文(wen)（以下簡稱(cheng)海(hai)(hai)南(nan)(nan)省人(ren)(ren)民政府(fu)(fu)(fu)12號(hao)文(wen)）的(de)(de)(de)(de)規定。遂判決駁回(hui)上訴(su)，維持原(yuan)判。
（三）典型意義
本(ben)案(an)的(de)(de)意義在于確定(ding)(ding)了(le)有償收回(hui)國(guo)有土(tu)地(di)(di)(di)使(shi)(shi)用(yong)權(quan)補(bu)償標準的(de)(de)問題。根據(ju)2004年修正(zheng)的(de)(de)《中(zhong)華(hua)人(ren)民共(gong)和國(guo)土(tu)地(di)(di)(di)管(guan)理(li)法(fa)(fa)(fa)(fa)》第(di)(di)五(wu)十八條第(di)(di)二款(kuan)規定(ding)(ding)，為公共(gong)利(li)益(yi)需要(yao)使(shi)(shi)用(yong)土(tu)地(di)(di)(di)而收回(hui)國(guo)有土(tu)地(di)(di)(di)使(shi)(shi)用(yong)權(quan)的(de)(de)，對土(tu)地(di)(di)(di)使(shi)(shi)用(yong)權(quan)人(ren)應當(dang)給(gei)予(yu)適當(dang)補(bu)償。該款(kuan)規定(ding)(ding)的(de)(de)“適當(dang)補(bu)償”應當(dang)是公平合(he)理(li)的(de)(de)補(bu)償，即綜合(he)考慮(lv)被收回(hui)土(tu)地(di)(di)(di)的(de)(de)性質、用(yong)途(tu)、區位、評(ping)估(gu)方法(fa)(fa)(fa)(fa)、閑置原因等因素，參考市(shi)場(chang)價(jia)格予(yu)以(yi)補(bu)償。為了(le)適時解決有關歷史遺留問題，切實(shi)維護(hu)土(tu)地(di)(di)(di)使(shi)(shi)用(yong)權(quan)人(ren)及其他投資(zi)(zi)(zi)人(ren)合(he)法(fa)(fa)(fa)(fa)權(quan)益(yi)，營造良(liang)好(hao)(hao)營商環境(jing)，自然資(zi)(zi)(zi)源部(bu)1903號函以(yi)及海南省(sheng)(sheng)人(ren)民政府12號文均規定(ding)(ding)，縣級(ji)以(yi)上(shang)人(ren)民政府有償收回(hui)存(cun)量商品住宅用(yong)地(di)(di)(di)的(de)(de)補(bu)償金額不低于土(tu)地(di)(di)(di)使(shi)(shi)用(yong)權(quan)人(ren)取(qu)得(de)土(tu)地(di)(di)(di)的(de)(de)成本(ben)，并綜合(he)考慮(lv)其合(he)理(li)的(de)(de)直接損失(shi)，參考市(shi)場(chang)價(jia)格確定(ding)(ding)。本(ben)案(an)中(zhong)，行(xing)政機關應本(ben)著實(shi)質化解行(xing)政爭議(yi)的(de)(de)目的(de)(de)，按(an)照自然資(zi)(zi)(zi)源部(bu)1903號函以(yi)及海南省(sheng)(sheng)人(ren)民政府12號文的(de)(de)精神，依(yi)法(fa)(fa)(fa)(fa)合(he)理(li)作出(chu)補(bu)償，合(he)法(fa)(fa)(fa)(fa)合(he)理(li)保(bao)護(hu)土(tu)地(di)(di)(di)使(shi)(shi)用(yong)權(quan)人(ren)的(de)(de)合(he)法(fa)(fa)(fa)(fa)權(quan)益(yi)，營造良(liang)好(hao)(hao)營商環境(jing)。
二、古田翠屏湖愛樂置業有限公司、福建愛樂投資有限公司訴古田縣人民政府行政協議及賠償案
（一）基本案情
2014年(nian)(nian)7月3日，古(gu)(gu)(gu)(gu)田(tian)(tian)(tian)縣(xian)人(ren)民政(zheng)(zheng)府(fu)(以(yi)下(xia)(xia)簡(jian)稱(cheng)古(gu)(gu)(gu)(gu)田(tian)(tian)(tian)縣(xian)政(zheng)(zheng)府(fu))與(yu)(yu)福(fu)建(jian)(jian)(jian)愛(ai)(ai)(ai)樂(le)(le)投(tou)資有(you)(you)(you)限公(gong)(gong)(gong)(gong)司(si)(si)(以(yi)下(xia)(xia)簡(jian)稱(cheng)福(fu)建(jian)(jian)(jian)愛(ai)(ai)(ai)樂(le)(le)公(gong)(gong)(gong)(gong)司(si)(si))簽(qian)訂(ding)(ding)了(le)(le)《古(gu)(gu)(gu)(gu)田(tian)(tian)(tian)縣(xian)翠(cui)屏(ping)湖(hu)(hu)(hu)片區(qu)項(xiang)(xiang)目(mu)(mu)投(tou)資框架(jia)協議書》，約定(ding)項(xiang)(xiang)目(mu)(mu)總(zong)投(tou)資約50億(yi)元，用(yong)地總(zong)面積約1000畝，項(xiang)(xiang)目(mu)(mu)定(ding)位為(wei)酒店、居住、旅游為(wei)一體的(de)(de)現代(dai)化(hua)高端生態城市綜合體。其后(hou)，雙方又簽(qian)訂(ding)(ding)了(le)(le)《補充協議》。2015年(nian)(nian)4月23日，福(fu)建(jian)(jian)(jian)愛(ai)(ai)(ai)樂(le)(le)公(gong)(gong)(gong)(gong)司(si)(si)指派莊某(mou)某(mou)通(tong)過公(gong)(gong)(gong)(gong)開拍賣競得(de)首期(qi)開發(fa)(fa)建(jian)(jian)(jian)設(she)(she)(she)用(yong)地103084平方米，并與(yu)(yu)原古(gu)(gu)(gu)(gu)田(tian)(tian)(tian)縣(xian)國土資源局簽(qian)訂(ding)(ding)《國有(you)(you)(you)建(jian)(jian)(jian)設(she)(she)(she)用(yong)地使(shi)用(yong)權出(chu)(chu)讓(rang)合同》，支付(fu)了(le)(le)土地出(chu)(chu)讓(rang)金人(ren)民幣1.2億(yi)元。2015年(nian)(nian)5月8日，古(gu)(gu)(gu)(gu)田(tian)(tian)(tian)翠(cui)屏(ping)湖(hu)(hu)(hu)愛(ai)(ai)(ai)樂(le)(le)置業有(you)(you)(you)限公(gong)(gong)(gong)(gong)司(si)(si)（以(yi)下(xia)(xia)簡(jian)稱(cheng)古(gu)(gu)(gu)(gu)田(tian)(tian)(tian)愛(ai)(ai)(ai)樂(le)(le)公(gong)(gong)(gong)(gong)司(si)(si)）成立，作(zuo)為(wei)案(an)涉投(tou)資開發(fa)(fa)項(xiang)(xiang)目(mu)(mu)的(de)(de)落地公(gong)(gong)(gong)(gong)司(si)(si)。2015年(nian)(nian)7月13日，古(gu)(gu)(gu)(gu)田(tian)(tian)(tian)愛(ai)(ai)(ai)樂(le)(le)公(gong)(gong)(gong)(gong)司(si)(si)與(yu)(yu)原古(gu)(gu)(gu)(gu)田(tian)(tian)(tian)縣(xian)國土資源局簽(qian)訂(ding)(ding)《國有(you)(you)(you)建(jian)(jian)(jian)設(she)(she)(she)用(yong)地使(shi)用(yong)權出(chu)(chu)讓(rang)合同》(合同補充條款)，約定(ding)由(you)古(gu)(gu)(gu)(gu)田(tian)(tian)(tian)愛(ai)(ai)(ai)樂(le)(le)公(gong)(gong)(gong)(gong)司(si)(si)承接(jie)莊某(mou)某(mou)之前簽(qian)訂(ding)(ding)的(de)(de)《國有(you)(you)(you)建(jian)(jian)(jian)設(she)(she)(she)用(yong)地使(shi)用(yong)權出(chu)(chu)讓(rang)合同》中全部(bu)權利義務。隨后(hou)，古(gu)(gu)(gu)(gu)田(tian)(tian)(tian)愛(ai)(ai)(ai)樂(le)(le)公(gong)(gong)(gong)(gong)司(si)(si)進行項(xiang)(xiang)目(mu)(mu)建(jian)(jian)(jian)設(she)(she)(she)，不同程度建(jian)(jian)(jian)設(she)(she)(she)了(le)(le)酒店、附屬樓(lou)及(ji)50余棟(dong)別(bie)墅并預(yu)售了(le)(le)部(bu)分別(bie)墅。其后(hou)，古(gu)(gu)(gu)(gu)田(tian)(tian)(tian)縣(xian)政(zheng)(zheng)府(fu)及(ji)有(you)(you)(you)關部(bu)門以(yi)適應省(sheng)生態文明實驗區(qu)建(jian)(jian)(jian)設(she)(she)(she)需(xu)要，依照新(xin)頒布的(de)(de)水資源、國有(you)(you)(you)林場的(de)(de)有(you)(you)(you)關行政(zheng)(zheng)管理規(gui)定(ding)，按照省(sheng)有(you)(you)(you)關主(zhu)管部(bu)門的(de)(de)意見和(he)(he)建(jian)(jian)(jian)議，以(yi)停止翠(cui)屏(ping)湖(hu)(hu)(hu)沿線公(gong)(gong)(gong)(gong)路內側地產類開發(fa)(fa)項(xiang)(xiang)目(mu)(mu)的(de)(de)實施、對(dui)(dui)翠(cui)屏(ping)湖(hu)(hu)(hu)高頭嶺片區(qu)規(gui)劃進行新(xin)的(de)(de)調整等(deng)為(wei)由(you)，叫停了(le)(le)案(an)涉項(xiang)(xiang)目(mu)(mu)的(de)(de)開發(fa)(fa)建(jian)(jian)(jian)設(she)(she)(she)和(he)(he)經營銷售。同時(shi)，古(gu)(gu)(gu)(gu)田(tian)(tian)(tian)縣(xian)政(zheng)(zheng)府(fu)成立整改對(dui)(dui)接(jie)工(gong)作(zuo)小組，啟動協商(shang)(shang)收(shou)回(hui)國有(you)(you)(you)建(jian)(jian)(jian)設(she)(she)(she)用(yong)地使(shi)用(yong)權等(deng)工(gong)作(zuo)。后(hou)因收(shou)回(hui)及(ji)補償事宜協商(shang)(shang)未果(guo)，古(gu)(gu)(gu)(gu)田(tian)(tian)(tian)愛(ai)(ai)(ai)樂(le)(le)公(gong)(gong)(gong)(gong)司(si)(si)、福(fu)建(jian)(jian)(jian)愛(ai)(ai)(ai)樂(le)(le)公(gong)(gong)(gong)(gong)司(si)(si)提起(qi)行政(zheng)(zheng)訴訟(song)，請求解(jie)除(chu)雙方簽(qian)訂(ding)(ding)的(de)(de)招商(shang)(shang)引資合同（《古(gu)(gu)(gu)(gu)田(tian)(tian)(tian)縣(xian)翠(cui)屏(ping)湖(hu)(hu)(hu)片區(qu)項(xiang)(xiang)目(mu)(mu)投(tou)資框架(jia)協議書》和(he)(he)《補充協議》）及(ji)補償損(sun)失(shi)約2.6億(yi)元。
（二）裁判結果
福(fu)建省福(fu)州市中級人民(min)(min)法院(yuan)一(yi)審(shen)(shen)認為(wei)，因政策、規劃、用途等(deng)調(diao)整，涉(she)(she)案(an)行(xing)(xing)(xing)政協(xie)(xie)議(yi)(yi)(yi)已無法履行(xing)(xing)(xing)，福(fu)建愛(ai)(ai)樂(le)(le)公(gong)(gong)司(si)(si)(si)(si)和古田(tian)愛(ai)(ai)樂(le)(le)公(gong)(gong)司(si)(si)(si)(si)請求(qiu)解除(chu)案(an)涉(she)(she)行(xing)(xing)(xing)政協(xie)(xie)議(yi)(yi)(yi)應予支持(chi)。同時(shi)，以相(xiang)關(guan)評估(gu)(gu)機構對(dui)收(shou)回涉(she)(she)案(an)土地使用權及(ji)在建工程的(de)評估(gu)(gu)價格作為(wei)解除(chu)案(an)涉(she)(she)行(xing)(xing)(xing)政協(xie)(xie)議(yi)(yi)(yi)造(zao)成(cheng)(cheng)損失金額的(de)計算依(yi)據，確(que)定支付(fu)給古田(tian)愛(ai)(ai)樂(le)(le)公(gong)(gong)司(si)(si)(si)(si)的(de)損失金額。為(wei)此，一(yi)審(shen)(shen)判決(jue)：解除(chu)雙方(fang)簽訂(ding)的(de)《古田(tian)縣翠(cui)屏湖片區(qu)項目(mu)投資(zi)框架(jia)協(xie)(xie)議(yi)(yi)(yi)書》及(ji)《補(bu)充協(xie)(xie)議(yi)(yi)(yi)》；由古田(tian)縣政府向(xiang)古田(tian)愛(ai)(ai)樂(le)(le)公(gong)(gong)司(si)(si)(si)(si)支付(fu)302146933元及(ji)相(xiang)關(guan)利(li)息的(de)損失；駁回古田(tian)愛(ai)(ai)樂(le)(le)公(gong)(gong)司(si)(si)(si)(si)和福(fu)建愛(ai)(ai)樂(le)(le)公(gong)(gong)司(si)(si)(si)(si)的(de)其他訴訟請求(qiu)。福(fu)建省高級人民(min)(min)法院(yuan)二(er)審(shen)(shen)期間，經多方(fang)組織調(diao)解，促成(cheng)(cheng)各方(fang)就案(an)涉(she)(she)行(xing)(xing)(xing)政協(xie)(xie)議(yi)(yi)(yi)的(de)解除(chu)、企業損失的(de)支付(fu)、項目(mu)建設用地收(shou)回、在建工程的(de)交接、相(xiang)關(guan)購房戶及(ji)建筑商款(kuan)項的(de)善后工作等(deng)事項自愿達成(cheng)(cheng)調(diao)解協(xie)(xie)議(yi)(yi)(yi)。根據調(diao)解協(xie)(xie)議(yi)(yi)(yi)，二(er)審(shen)(shen)法院(yuan)依(yi)法作出了(le)《行(xing)(xing)(xing)政調(diao)解書》。
（三）典型意義
行(xing)(xing)(xing)政(zheng)機關(guan)與(yu)民(min)營(ying)(ying)企(qi)業(ye)(ye)依(yi)法簽(qian)訂的(de)(de)行(xing)(xing)(xing)政(zheng)協議(yi)應(ying)(ying)受法律保護，行(xing)(xing)(xing)政(zheng)機關(guan)應(ying)(ying)對符合(he)法律規(gui)定解(jie)除(chu)行(xing)(xing)(xing)政(zheng)協議(yi)給民(min)營(ying)(ying)企(qi)業(ye)(ye)合(he)法產(chan)權(quan)(quan)造成(cheng)的(de)(de)損失依(yi)法給予補償，切實保護民(min)營(ying)(ying)企(qi)業(ye)(ye)的(de)(de)合(he)法產(chan)權(quan)(quan)。行(xing)(xing)(xing)政(zheng)協議(yi)具有雙方(fang)意思表(biao)示(shi)一致的(de)(de)特點，審(shen)(shen)理(li)(li)行(xing)(xing)(xing)政(zheng)協議(yi)案件(jian)可適用(yong)審(shen)(shen)理(li)(li)民(min)事(shi)合(he)同糾紛的(de)(de)相(xiang)關(guan)規(gui)則，因此(ci)，屬于可適用(yong)調(diao)解(jie)的(de)(de)行(xing)(xing)(xing)政(zheng)案件(jian)。二審(shen)(shen)法院(yuan)為(wei)(wei)認真貫徹落實生態文明(ming)實驗區建(jian)設要求，切實保護好民(min)營(ying)(ying)企(qi)業(ye)(ye)的(de)(de)合(he)法產(chan)權(quan)(quan)，有效化解(jie)和實質(zhi)性解(jie)決(jue)行(xing)(xing)(xing)政(zheng)爭議(yi)，積極組織各方(fang)當事(shi)人協商調(diao)解(jie)。在查明(ming)事(shi)實、分清(qing)責(ze)任的(de)(de)基礎上，為(wei)(wei)雙方(fang)厘清(qing)是非、釋明(ming)法理(li)(li)，終于使各方(fang)取得(de)共識，達成(cheng)調(diao)解(jie)協議(yi)。不僅(jin)有效化解(jie)了(le)(le)案涉(she)行(xing)(xing)(xing)政(zheng)協議(yi)的(de)(de)爭議(yi)，還一攬子解(jie)決(jue)了(le)(le)因解(jie)除(chu)案涉(she)行(xing)(xing)(xing)政(zheng)協議(yi)引(yin)起的(de)(de)土地使用(yong)權(quan)(quan)出讓合(he)同解(jie)除(chu)、土地使用(yong)權(quan)(quan)收回(hui)、在建(jian)工程交接以及有關(guan)購(gou)房(fang)戶、工程款糾紛等一系列相(xiang)關(guan)問題(ti)。既為(wei)(wei)生態文明(ming)建(jian)設大(da)局提(ti)供(gong)司(si)法服務，又為(wei)(wei)民(min)營(ying)(ying)企(qi)業(ye)(ye)合(he)法產(chan)權(quan)(quan)提(ti)供(gong)司(si)法保障，促進了(le)(le)法治政(zheng)府、誠信政(zheng)府建(jian)設，有利于營(ying)(ying)造良好的(de)(de)營(ying)(ying)商環境，取得(de)了(le)(le)較好的(de)(de)法律效果和社會效果。
三、李三德訴寶雞市渭濱區人民政府行政強制案
（一）基本案情
李(li)三(san)(san)(san)德(de)系寶雞(ji)市渭濱區(qu)(qu)神農鎮陳(chen)(chen)家(jia)村(cun)(cun)（以(yi)下簡稱陳(chen)(chen)家(jia)村(cun)(cun)）村(cun)(cun)民(min)，在該組擁有宅基地并建有房(fang)(fang)屋。2013年12月(yue)(yue)25日(ri)，寶雞(ji)市渭濱區(qu)(qu)舊城改(gai)(gai)造(zao)領導(dao)小(xiao)組發文成立了(le)陳(chen)(chen)家(jia)村(cun)(cun)城改(gai)(gai)辦(ban)(ban)，對陳(chen)(chen)家(jia)村(cun)(cun)進行城中村(cun)(cun)改(gai)(gai)造(zao)。2015年9月(yue)(yue)16日(ri)，李(li)三(san)(san)(san)德(de)作為乙(yi)方與甲方陳(chen)(chen)家(jia)村(cun)(cun)城改(gai)(gai)辦(ban)(ban)簽(qian)訂《拆(chai)(chai)遷(qian)(qian)過渡(du)(du)協議(yi)》。該協議(yi)約定全(quan)村(cun)(cun)實行統一的城中村(cun)(cun)改(gai)(gai)造(zao)拆(chai)(chai)遷(qian)(qian)安置補償標準，并對于乙(yi)方住房(fang)(fang)面(mian)積做(zuo)了(le)確認，約定了(le)過渡(du)(du)費(fei)和搬遷(qian)(qian)費(fei)、獎勵(li)的金額，同時約定乙(yi)方應在2015年10月(yue)(yue)15日(ri)前簽(qian)訂協議(yi)并騰空房(fang)(fang)屋、交付(fu)房(fang)(fang)屋鑰匙(chi)，交由甲方實施(shi)(shi)拆(chai)(chai)遷(qian)(qian)。2015年10月(yue)(yue)2日(ri)，李(li)三(san)(san)(san)德(de)將房(fang)(fang)屋騰空并向陳(chen)(chen)家(jia)村(cun)(cun)城改(gai)(gai)辦(ban)(ban)交付(fu)住房(fang)(fang)鑰匙(chi)。2016年9月(yue)(yue)11日(ri)，陳(chen)(chen)家(jia)村(cun)(cun)村(cun)(cun)委會組織實施(shi)(shi)拆(chai)(chai)除(chu)了(le)李(li)三(san)(san)(san)德(de)的房(fang)(fang)屋。李(li)三(san)(san)(san)德(de)不服(fu)拆(chai)(chai)除(chu)房(fang)(fang)屋的行為，于2016年10月(yue)(yue)17日(ri)訴至(zhi)法院，請(qing)求(qiu)確認寶雞(ji)市渭濱區(qu)(qu)人(ren)民(min)政(zheng)府（以(yi)下簡稱渭濱區(qu)(qu)政(zheng)府）強拆(chai)(chai)其(qi)房(fang)(fang)屋的行為違法并承擔本案的訴訟費(fei)用(yong)。
（二）裁判結果
陜西省寶雞市中級(ji)人(ren)民(min)法(fa)(fa)院(yuan)(yuan)(yuan)一(yi)審認(ren)為(wei)(wei)(wei)，渭(wei)濱區(qu)政府(fu)拆(chai)除(chu)李(li)(li)(li)三德房(fang)屋(wu)系依(yi)據《拆(chai)遷過渡協(xie)議(yi)》實(shi)(shi)施(shi)的(de)(de)(de)合法(fa)(fa)行(xing)為(wei)(wei)(wei)，判決駁(bo)回李(li)(li)(li)三德的(de)(de)(de)訴訟請(qing)(qing)求。李(li)(li)(li)三德不服一(yi)審判決，提起上訴。陜西省高級(ji)人(ren)民(min)法(fa)(fa)院(yuan)(yuan)(yuan)二審認(ren)為(wei)(wei)(wei)，陳家村(cun)村(cun)委會組織實(shi)(shi)施(shi)強制(zhi)拆(chai)除(chu)李(li)(li)(li)三德房(fang)屋(wu)的(de)(de)(de)行(xing)為(wei)(wei)(wei)系代渭(wei)濱區(qu)政府(fu)實(shi)(shi)施(shi)的(de)(de)(de)受(shou)委托(tuo)行(xing)為(wei)(wei)(wei)，相應(ying)的(de)(de)(de)法(fa)(fa)律后果應(ying)當由渭(wei)濱區(qu)政府(fu)承擔。渭(wei)濱區(qu)政府(fu)既沒有依(yi)法(fa)(fa)作出《責令交出土(tu)地(di)決定(ding)(ding)》，也沒有依(yi)法(fa)(fa)申(shen)請(qing)(qing)人(ren)民(min)法(fa)(fa)院(yuan)(yuan)(yuan)強制(zhi)執(zhi)行(xing)，且在沒有完成安置補償工作的(de)(de)(de)情(qing)況下(xia)，直接對李(li)(li)(li)三德的(de)(de)(de)房(fang)屋(wu)實(shi)(shi)施(shi)了強制(zhi)拆(chai)除(chu)行(xing)為(wei)(wei)(wei)，違反(fan)法(fa)(fa)律規定(ding)(ding)。遂(sui)判決撤銷一(yi)審判決，確認(ren)渭(wei)濱區(qu)政府(fu)拆(chai)除(chu)李(li)(li)(li)三德房(fang)屋(wu)的(de)(de)(de)行(xing)為(wei)(wei)(wei)違法(fa)(fa)。
（三）典型意義
《中華人(ren)民(min)共和(he)國土地(di)管理(li)法(fa)(fa)(fa)》《國有土地(di)上(shang)房(fang)(fang)屋(wu)(wu)征(zheng)(zheng)(zheng)收(shou)(shou)(shou)與補(bu)(bu)償(chang)條(tiao)例》等法(fa)(fa)(fa)律(lv)法(fa)(fa)(fa)規(gui)對(dui)(dui)(dui)集體土地(di)和(he)國有土地(di)上(shang)房(fang)(fang)屋(wu)(wu)征(zheng)(zheng)(zheng)收(shou)(shou)(shou)程(cheng)序和(he)方式均作出(chu)(chu)了(le)明確(que)規(gui)定(ding)。行(xing)政(zheng)(zheng)機關在(zai)對(dui)(dui)(dui)土地(di)和(he)房(fang)(fang)屋(wu)(wu)征(zheng)(zheng)(zheng)收(shou)(shou)(shou)的過(guo)程(cheng)中，應當(dang)遵循“先(xian)補(bu)(bu)償(chang)、后拆(chai)遷(qian)”原則，依(yi)法(fa)(fa)(fa)對(dui)(dui)(dui)被(bei)征(zheng)(zheng)(zheng)收(shou)(shou)(shou)人(ren)進(jin)行(xing)安(an)置(zhi)補(bu)(bu)償(chang)。在(zai)被(bei)征(zheng)(zheng)(zheng)收(shou)(shou)(shou)人(ren)已經依(yi)法(fa)(fa)(fa)得(de)到安(an)置(zhi)補(bu)(bu)償(chang)或者(zhe)無正當(dang)理(li)由拒絕接受安(an)置(zhi)補(bu)(bu)償(chang)的情況下(xia)，行(xing)政(zheng)(zheng)機關若(ruo)要實(shi)(shi)現強(qiang)制(zhi)(zhi)(zhi)搬(ban)遷(qian)和(he)拆(chai)除(chu)，也必須(xu)按(an)照法(fa)(fa)(fa)定(ding)程(cheng)序申請人(ren)民(min)法(fa)(fa)(fa)院(yuan)(yuan)強(qiang)制(zhi)(zhi)(zhi)執行(xing)，在(zai)獲(huo)得(de)人(ren)民(min)法(fa)(fa)(fa)院(yuan)(yuan)準許強(qiang)制(zhi)(zhi)(zhi)執行(xing)裁定(ding)前(qian)，行(xing)政(zheng)(zheng)機關沒有直接強(qiang)制(zhi)(zhi)(zhi)拆(chai)除(chu)被(bei)征(zheng)(zheng)(zheng)收(shou)(shou)(shou)房(fang)(fang)屋(wu)(wu)的權利(li)。本案中，渭濱(bin)區政(zheng)(zheng)府在(zai)李(li)(li)三德(de)(de)騰(teng)空房(fang)(fang)屋(wu)(wu)并交付住房(fang)(fang)鑰匙后實(shi)(shi)施拆(chai)除(chu)房(fang)(fang)屋(wu)(wu)的行(xing)為，從形式上(shang)看似(si)乎是依(yi)照協議(yi)的行(xing)為，也不違背李(li)(li)三德(de)(de)的意(yi)愿。但不可忽視(shi)的是，這種“貌(mao)似(si)自愿”是建立在(zai)被(bei)征(zheng)(zheng)(zheng)收(shou)(shou)(shou)人(ren)李(li)(li)三德(de)(de)并沒有獲(huo)得(de)實(shi)(shi)質(zhi)(zhi)補(bu)(bu)償(chang)的基礎(chu)上(shang)。李(li)(li)三德(de)(de)受政(zheng)(zheng)府許諾“獎勵”政(zheng)(zheng)策的影響，與陳(chen)家村城改(gai)辦簽(qian)訂了(le)《拆(chai)遷(qian)過(guo)渡協議(yi)》，僅對(dui)(dui)(dui)過(guo)渡費(fei)、搬(ban)遷(qian)費(fei)和(he)獎勵金額等進(jin)行(xing)約定(ding)，并未對(dui)(dui)(dui)李(li)(li)三德(de)(de)作出(chu)(chu)實(shi)(shi)質(zhi)(zhi)性補(bu)(bu)償(chang)安(an)置(zhi)。渭濱(bin)區政(zheng)(zheng)府以此(ci)作為拆(chai)除(chu)房(fang)(fang)屋(wu)(wu)的依(yi)據(ju)，不符合“先(xian)補(bu)(bu)償(chang)、后拆(chai)遷(qian)”原則的立法(fa)(fa)(fa)精神，不利(li)于全(quan)面保(bao)護被(bei)征(zheng)(zheng)(zheng)收(shou)(shou)(shou)人(ren)切身利(li)益。因此(ci)，渭濱(bin)區政(zheng)(zheng)府在(zai)沒有完成(cheng)安(an)置(zhi)補(bu)(bu)償(chang)工作，又(you)沒有依(yi)法(fa)(fa)(fa)申請人(ren)民(min)法(fa)(fa)(fa)院(yuan)(yuan)強(qiang)制(zhi)(zhi)(zhi)執行(xing)的情況下(xia)，即拆(chai)除(chu)了(le)李(li)(li)三德(de)(de)的房(fang)(fang)屋(wu)(wu)，明顯(xian)違反法(fa)(fa)(fa)律(lv)規(gui)定(ding)。
四、武漢市武昌南方鐵路配件廠訴武漢市洪山區人民政府房屋征收補償決定案
（一）基本案情
2015年5月(yue)，武(wu)漢(han)市(shi)洪(hong)山(shan)區(qu)(qu)(qu)(qu)人(ren)(ren)民政(zheng)(zheng)府(fu)（以(yi)(yi)下(xia)簡(jian)(jian)稱(cheng)洪(hong)山(shan)區(qu)(qu)(qu)(qu)政(zheng)(zheng)府(fu)）作(zuo)出洪(hong)政(zheng)(zheng)征(zheng)(zheng)(zheng)(zheng)(zheng)決(jue)(jue)字〔2015〕第1號房(fang)屋(wu)(wu)征(zheng)(zheng)(zheng)(zheng)(zheng)收(shou)(shou)(shou)(shou)決(jue)(jue)定，對(dui)楊泗港(gang)長江(jiang)大(da)橋(qiao)建設(she)用地范(fan)圍(wei)內(nei)的(de)(de)國有土地上房(fang)屋(wu)(wu)實施征(zheng)(zheng)(zheng)(zheng)(zheng)收(shou)(shou)(shou)(shou)，征(zheng)(zheng)(zheng)(zheng)(zheng)收(shou)(shou)(shou)(shou)部門(men)為(wei)該(gai)區(qu)(qu)(qu)(qu)房(fang)屋(wu)(wu)征(zheng)(zheng)(zheng)(zheng)(zheng)收(shou)(shou)(shou)(shou)管理辦(ban)公(gong)室(shi)（以(yi)(yi)下(xia)簡(jian)(jian)稱(cheng)洪(hong)山(shan)區(qu)(qu)(qu)(qu)征(zheng)(zheng)(zheng)(zheng)(zheng)收(shou)(shou)(shou)(shou)辦(ban)）。武(wu)漢(han)市(shi)武(wu)昌南(nan)(nan)(nan)(nan)方鐵路配(pei)件(jian)廠(chang)（以(yi)(yi)下(xia)簡(jian)(jian)稱(cheng)南(nan)(nan)(nan)(nan)方配(pei)件(jian)廠(chang)）的(de)(de)廠(chang)房(fang)位于(yu)(yu)征(zheng)(zheng)(zheng)(zheng)(zheng)收(shou)(shou)(shou)(shou)范(fan)圍(wei)內(nei)，規劃用途(tu)為(wei)工業配(pei)套。被征(zheng)(zheng)(zheng)(zheng)(zheng)收(shou)(shou)(shou)(shou)人(ren)(ren)投票選定評(ping)估(gu)(gu)機構(gou)后，洪(hong)山(shan)區(qu)(qu)(qu)(qu)征(zheng)(zheng)(zheng)(zheng)(zheng)收(shou)(shou)(shou)(shou)辦(ban)分別于(yu)(yu)2015年6月(yue)12日及(ji)24日對(dui)房(fang)屋(wu)(wu)初步評(ping)估(gu)(gu)結(jie)果(guo)和(he)房(fang)屋(wu)(wu)征(zheng)(zheng)(zheng)(zheng)(zheng)收(shou)(shou)(shou)(shou)價(jia)(jia)格評(ping)估(gu)(gu)結(jie)果(guo)進(jin)行了(le)公(gong)告(gao)，評(ping)估(gu)(gu)公(gong)司在此期(qi)間(jian)制作(zuo)了(le)南(nan)(nan)(nan)(nan)方配(pei)件(jian)廠(chang)的(de)(de)分戶評(ping)估(gu)(gu)報告(gao)，但(dan)洪(hong)山(shan)區(qu)(qu)(qu)(qu)征(zheng)(zheng)(zheng)(zheng)(zheng)收(shou)(shou)(shou)(shou)辦(ban)直(zhi)至2016年5月(yue)31日才向(xiang)南(nan)(nan)(nan)(nan)方配(pei)件(jian)廠(chang)留置送(song)達。洪(hong)山(shan)區(qu)(qu)(qu)(qu)征(zheng)(zheng)(zheng)(zheng)(zheng)收(shou)(shou)(shou)(shou)辦(ban)另外委托(tuo)資產(chan)(chan)(chan)評(ping)估(gu)(gu)公(gong)司對(dui)南(nan)(nan)(nan)(nan)方配(pei)件(jian)廠(chang)的(de)(de)變壓器、車床等設(she)備(bei)類(lei)資產(chan)(chan)(chan)的(de)(de)市(shi)場價(jia)(jia)值進(jin)行評(ping)估(gu)(gu)并出具了(le)資產(chan)(chan)(chan)評(ping)估(gu)(gu)咨(zi)詢報告(gao)，但(dan)未(wei)向(xiang)南(nan)(nan)(nan)(nan)方配(pei)件(jian)廠(chang)送(song)達。因南(nan)(nan)(nan)(nan)方配(pei)件(jian)廠(chang)與洪(hong)山(shan)區(qu)(qu)(qu)(qu)征(zheng)(zheng)(zheng)(zheng)(zheng)收(shou)(shou)(shou)(shou)辦(ban)始終未(wei)達成補(bu)償協議(yi)，經(jing)洪(hong)山(shan)區(qu)(qu)(qu)(qu)征(zheng)(zheng)(zheng)(zheng)(zheng)收(shou)(shou)(shou)(shou)辦(ban)申請(qing)，洪(hong)山(shan)區(qu)(qu)(qu)(qu)政(zheng)(zheng)府(fu)于(yu)(yu)2016年8月(yue)12日作(zuo)出洪(hong)政(zheng)(zheng)征(zheng)(zheng)(zheng)(zheng)(zheng)補(bu)字〔2016〕2號《房(fang)屋(wu)(wu)征(zheng)(zheng)(zheng)(zheng)(zheng)收(shou)(shou)(shou)(shou)補(bu)償決(jue)(jue)定書》（以(yi)(yi)下(xia)簡(jian)(jian)稱(cheng)2號補(bu)償決(jue)(jue)定）并張貼于(yu)(yu)南(nan)(nan)(nan)(nan)方配(pei)件(jian)廠(chang)廠(chang)房(fang)處。該(gai)補(bu)償決(jue)(jue)定設(she)定的(de)(de)產(chan)(chan)(chan)權(quan)(quan)調換(huan)主要內(nei)容為(wei)：“……房(fang)屋(wu)(wu)征(zheng)(zheng)(zheng)(zheng)(zheng)收(shou)(shou)(shou)(shou)部門(men)提(ti)供位于(yu)(yu)洪(hong)山(shan)區(qu)(qu)(qu)(qu)紅霞(xia)村(cun)紅霞(xia)雅苑(yuan)10處房(fang)屋(wu)(wu)作(zuo)為(wei)產(chan)(chan)(chan)權(quan)(quan)調換(huan)房(fang)……規劃用途(tu)為(wei)住宅……”。2016年9月(yue)28日，南(nan)(nan)(nan)(nan)方配(pei)件(jian)廠(chang)的(de)(de)廠(chang)房(fang)被強制拆除。南(nan)(nan)(nan)(nan)方配(pei)件(jian)廠(chang)不服該(gai)補(bu)償決(jue)(jue)定，訴至法(fa)院。
（二）裁判結果
湖北(bei)(bei)省武漢市中級(ji)人(ren)民法(fa)院一審(shen)認為，根據《國(guo)有(you)土地(di)上(shang)房(fang)屋征(zheng)(zheng)收(shou)(shou)(shou)與補(bu)(bu)(bu)償(chang)(chang)(chang)條例》及《國(guo)有(you)土地(di)上(shang)房(fang)屋征(zheng)(zheng)收(shou)(shou)(shou)評(ping)估(gu)辦(ban)法(fa)》的(de)規(gui)定(ding)，房(fang)屋征(zheng)(zheng)收(shou)(shou)(shou)部門應當在分(fen)戶(hu)初步評(ping)估(gu)結果公示(shi)期滿后向(xiang)被(bei)征(zheng)(zheng)收(shou)(shou)(shou)人(ren)轉(zhuan)交(jiao)分(fen)戶(hu)評(ping)估(gu)報告(gao)(gao)(gao)，被(bei)征(zheng)(zheng)收(shou)(shou)(shou)人(ren)對(dui)評(ping)估(gu)結果有(you)疑問的(de)可以申請復(fu)核評(ping)估(gu)及鑒(jian)定(ding)。本案中，洪(hong)山(shan)區(qu)征(zheng)(zheng)收(shou)(shou)(shou)辦(ban)向(xiang)南(nan)(nan)方(fang)(fang)配(pei)(pei)件(jian)(jian)廠(chang)(chang)留(liu)置送達分(fen)戶(hu)評(ping)估(gu)報告(gao)(gao)(gao)的(de)時間距該報告(gao)(gao)(gao)作出近1年，導致南(nan)(nan)方(fang)(fang)配(pei)(pei)件(jian)(jian)廠(chang)(chang)失去了申請復(fu)核及鑒(jian)定(ding)的(de)權利并(bing)錯過簽約期，構成(cheng)程(cheng)序違法(fa)。對(dui)于(yu)南(nan)(nan)方(fang)(fang)配(pei)(pei)件(jian)(jian)廠(chang)(chang)的(de)設備資(zi)產(chan)補(bu)(bu)(bu)償(chang)(chang)(chang)問題，雖然洪(hong)山(shan)區(qu)征(zheng)(zheng)收(shou)(shou)(shou)辦(ban)另委托評(ping)估(gu)公司出具了資(zi)產(chan)評(ping)估(gu)咨(zi)詢報告(gao)(gao)(gao)，但未(wei)向(xiang)南(nan)(nan)方(fang)(fang)配(pei)(pei)件(jian)(jian)廠(chang)(chang)送達，亦構成(cheng)程(cheng)序違法(fa)。一審(shen)遂判(pan)決撤(che)銷(xiao)洪(hong)山(shan)區(qu)政(zheng)(zheng)府作出的(de)2號補(bu)(bu)(bu)償(chang)(chang)(chang)決定(ding)。洪(hong)山(shan)區(qu)政(zheng)(zheng)府提起上(shang)訴(su)，湖北(bei)(bei)省高級(ji)人(ren)民法(fa)院二審(shen)對(dui)2號補(bu)(bu)(bu)償(chang)(chang)(chang)決定(ding)程(cheng)序違法(fa)的(de)一審(shen)裁判(pan)意見予以支持。同時認為，該補(bu)(bu)(bu)償(chang)(chang)(chang)決定(ding)雖然在形(xing)式(shi)上(shang)設定(ding)了貨(huo)幣補(bu)(bu)(bu)償(chang)(chang)(chang)和產(chan)權調(diao)(diao)換兩種(zhong)補(bu)(bu)(bu)償(chang)(chang)(chang)方(fang)(fang)式(shi)供(gong)選擇，但就實(shi)質(zhi)(zhi)內容而言，洪(hong)山(shan)區(qu)政(zheng)(zheng)府針對(dui)南(nan)(nan)方(fang)(fang)配(pei)(pei)件(jian)(jian)廠(chang)(chang)的(de)規(gui)劃用途為工業配(pei)(pei)套、實(shi)際亦用于(yu)生產(chan)的(de)廠(chang)(chang)房(fang)，提供(gong)10套住宅用于(yu)產(chan)權調(diao)(diao)換，這與南(nan)(nan)方(fang)(fang)配(pei)(pei)件(jian)(jian)廠(chang)(chang)秉持的(de)通過產(chan)權調(diao)(diao)換獲得新(xin)廠(chang)(chang)房(fang)、征(zheng)(zheng)收(shou)(shou)(shou)后繼續生產(chan)經營的(de)意愿及需(xu)要(yao)(yao)嚴重不(bu)符，實(shi)質(zhi)(zhi)上(shang)限制了南(nan)(nan)方(fang)(fang)配(pei)(pei)件(jian)(jian)廠(chang)(chang)對(dui)補(bu)(bu)(bu)償(chang)(chang)(chang)方(fang)(fang)式(shi)的(de)選擇權，洪(hong)山(shan)區(qu)政(zheng)(zheng)府也未(wei)能舉證(zheng)證(zheng)明(ming)南(nan)(nan)方(fang)(fang)配(pei)(pei)件(jian)(jian)廠(chang)(chang)的(de)上(shang)述意愿違反法(fa)律強(qiang)制性(xing)規(gui)定(ding)或客觀上(shang)無法(fa)實(shi)現。據此，2號補(bu)(bu)(bu)償(chang)(chang)(chang)決定(ding)設定(ding)的(de)房(fang)屋產(chan)權調(diao)(diao)換方(fang)(fang)式(shi)不(bu)符合(he)行政(zheng)(zheng)行為合(he)理(li)性(xing)原則(ze)的(de)要(yao)(yao)求，屬于(yu)明(ming)顯不(bu)當的(de)情形(xing)。二審(shen)終審(shen)判(pan)決駁回(hui)上(shang)訴(su)，維持原判(pan)。
（三）典型意義
處(chu)于(yu)正常生(sheng)產(chan)(chan)經(jing)(jing)(jing)營(ying)狀態、特別是經(jing)(jing)(jing)濟效益(yi)尚可(ke)的(de)(de)(de)(de)(de)企(qi)業在遇到征(zheng)(zheng)收時，出于(yu)堅持生(sheng)產(chan)(chan)事業、安置員(yuan)工(gong)等(deng)主客觀方面(mian)的(de)(de)(de)(de)(de)實(shi)際(ji)需要，往(wang)(wang)往(wang)(wang)抱有在征(zheng)(zheng)收后繼續生(sheng)產(chan)(chan)經(jing)(jing)(jing)營(ying)的(de)(de)(de)(de)(de)意(yi)(yi)愿(yuan)，這(zhe)種意(yi)(yi)愿(yuan)是企(qi)業經(jing)(jing)(jing)營(ying)權(quan)及財(cai)產(chan)(chan)權(quan)的(de)(de)(de)(de)(de)合(he)(he)(he)理(li)延伸。為(wei)實(shi)現(xian)這(zhe)一意(yi)(yi)愿(yuan)，被征(zheng)(zheng)收企(qi)業多傾向(xiang)于(yu)選(xuan)擇房(fang)屋(wu)產(chan)(chan)權(quan)調換的(de)(de)(de)(de)(de)補(bu)(bu)(bu)償(chang)方式，希望直(zhi)接獲得用于(yu)繼續生(sheng)產(chan)(chan)的(de)(de)(de)(de)(de)房(fang)屋(wu)、場(chang)地等(deng)必要生(sheng)產(chan)(chan)資料。在征(zheng)(zheng)收補(bu)(bu)(bu)償(chang)工(gong)作(zuo)中，征(zheng)(zheng)收補(bu)(bu)(bu)償(chang)實(shi)施主體應當(dang)適度(du)考慮被征(zheng)(zheng)收企(qi)業的(de)(de)(de)(de)(de)意(yi)(yi)愿(yuan)和(he)被征(zheng)(zheng)收房(fang)屋(wu)的(de)(de)(de)(de)(de)特定用途，在不突破(po)法律規(gui)定和(he)征(zheng)(zheng)收補(bu)(bu)(bu)償(chang)政策(ce)框架(jia)、不背離國(guo)(guo)家(jia)利(li)益(yi)及社(she)(she)會公共(gong)(gong)利(li)益(yi)的(de)(de)(de)(de)(de)前提下，盡(jin)可(ke)能制定與(yu)之(zhi)相匹配的(de)(de)(de)(de)(de)征(zheng)(zheng)收補(bu)(bu)(bu)償(chang)安置方案，正當(dang)履行(xing)告知、送達等(deng)法定程序義務，作(zuo)出合(he)(he)(he)理(li)的(de)(de)(de)(de)(de)補(bu)(bu)(bu)償(chang)決定，在維(wei)護(hu)(hu)國(guo)(guo)家(jia)利(li)益(yi)及社(she)(she)會公共(gong)(gong)利(li)益(yi)的(de)(de)(de)(de)(de)同時，兼顧對企(qi)業經(jing)(jing)(jing)營(ying)權(quan)、財(cai)產(chan)(chan)權(quan)等(deng)合(he)(he)(he)法權(quan)益(yi)的(de)(de)(de)(de)(de)保護(hu)(hu)，使(shi)企(qi)業的(de)(de)(de)(de)(de)市場(chang)經(jing)(jing)(jing)濟活力得以維(wei)系。
五、汕尾市真誠公共汽車運輸有限公司訴汕尾市人民政府排除、限制競爭案
（一）基本案情
為解(jie)決公(gong)(gong)共(gong)交(jiao)(jiao)通(tong)(tong)(tong)相對落后的狀況(kuang)，汕尾(wei)(wei)市(shi)(shi)人民政府（以(yi)(yi)(yi)下簡稱汕尾(wei)(wei)市(shi)(shi)政府）于(yu)2015年(nian)7月27日(ri)形成《工作(zuo)會(hui)議(yi)紀要(yao)》，決定以(yi)(yi)(yi)政府許可(ke)方式與廣東省(sheng)粵(yue)運(yun)(yun)(yun)交(jiao)(jiao)通(tong)(tong)(tong)股份有限公(gong)(gong)司(si)(si)合作(zuo)經營(ying)(ying)公(gong)(gong)共(gong)交(jiao)(jiao)通(tong)(tong)(tong)事業，將該市(shi)(shi)公(gong)(gong)共(gong)交(jiao)(jiao)通(tong)(tong)(tong)經營(ying)(ying)權及公(gong)(gong)共(gong)站(zhan)場土地使用權許可(ke)給其(qi)項(xiang)目公(gong)(gong)司(si)(si)汕尾(wei)(wei)市(shi)(shi)粵(yue)運(yun)(yun)(yun)汽車運(yun)(yun)(yun)輸(shu)有限公(gong)(gong)司(si)(si)（以(yi)(yi)(yi)下簡稱汕尾(wei)(wei)粵(yue)運(yun)(yun)(yun)公(gong)(gong)司(si)(si)）。根據(ju)上(shang)述會(hui)議(yi)紀要(yao)，汕尾(wei)(wei)市(shi)(shi)交(jiao)(jiao)通(tong)(tong)(tong)運(yun)(yun)(yun)輸(shu)局于(yu)同(tong)日(ri)向汕尾(wei)(wei)市(shi)(shi)真(zhen)誠(cheng)公(gong)(gong)共(gong)汽車運(yun)(yun)(yun)輸(shu)有限公(gong)(gong)司(si)(si)（以(yi)(yi)(yi)下簡稱真(zhen)誠(cheng)公(gong)(gong)司(si)(si)）發出(chu)《通(tong)(tong)(tong)知》，要(yao)求該公(gong)(gong)司(si)(si)辦理相關公(gong)(gong)交(jiao)(jiao)車的報廢手續并停止營(ying)(ying)運(yun)(yun)(yun)，同(tong)時收回經營(ying)(ying)權指標(biao)。
隨后(hou)，汕(shan)尾市(shi)(shi)政府于2015年8月21日(ri)就該(gai)市(shi)(shi)轄區“0-50公(gong)里公(gong)共交通(tong)項(xiang)目”發(fa)布特(te)許(xu)經(jing)營(ying)權招投標公(gong)告(gao)，要求參與(yu)投標者的(de)資(zi)(zi)(zi)質條件應達到(dao)包括(kuo)資(zi)(zi)(zi)產(chan)(chan)總額不(bu)低于20億元、具有10年以上(shang)國(guo)家(jia)一(yi)(yi)級道路旅(lv)客運輸企(qi)業(ye)的(de)資(zi)(zi)(zi)質等4項(xiang)要求。經(jing)報名、公(gong)示，后(hou)因其他(ta)參與(yu)者中途放棄，廣東省粵(yue)運交通(tong)股(gu)份有限公(gong)司控股(gu)的(de)關聯公(gong)司成為(wei)唯一(yi)(yi)的(de)投標者。經(jing)競爭性談判，2015年9月28日(ri)，汕(shan)尾市(shi)(shi)人民政府國(guo)有資(zi)(zi)(zi)產(chan)(chan)監督管理委員會發(fa)出公(gong)告(gao)，同意(yi)該(gai)特(te)許(xu)經(jing)營(ying)項(xiang)目具體(ti)由汕(shan)尾粵(yue)運公(gong)司負責實施。真誠公(gong)司不(bu)服訴至法院，請(qing)求撤(che)銷汕(shan)尾市(shi)(shi)政府上(shang)述獨家(jia)特(te)許(xu)經(jing)營(ying)許(xu)可決定，立即(ji)停止違法行為(wei)。
（二）裁判結果
廣(guang)東省汕(shan)(shan)尾(wei)(wei)市(shi)中(zhong)級人(ren)民(min)(min)法(fa)院一(yi)(yi)審(shen)判(pan)(pan)決駁回真誠公(gong)司(si)的(de)(de)訴訟請求。真誠公(gong)司(si)不(bu)服(fu)提起上(shang)訴。廣(guang)東省高級人(ren)民(min)(min)法(fa)院二審(shen)認為，汕(shan)(shan)尾(wei)(wei)市(shi)政(zheng)府(fu)發布招投標公(gong)告之前(qian)，已經(jing)事先通過會議紀要(yao)的(de)(de)方式將(jiang)汕(shan)(shan)尾(wei)(wei)市(shi)轄區(qu)范圍內的(de)(de)公(gong)共交(jiao)通特(te)(te)許經(jing)營(ying)權直接授予汕(shan)(shan)尾(wei)(wei)粵運公(gong)司(si)獨(du)家經(jing)營(ying)。交(jiao)通行(xing)(xing)(xing)政(zheng)部門亦根據該(gai)紀要(yao)決定提前(qian)收回真誠公(gong)司(si)的(de)(de)相關(guan)公(gong)交(jiao)運營(ying)指(zhi)標。汕(shan)(shan)尾(wei)(wei)市(shi)政(zheng)府(fu)提前(qian)指(zhi)定獨(du)家特(te)(te)許經(jing)營(ying)者(zhe)，違反了《基礎設(she)施和(he)公(gong)用(yong)事業(ye)特(te)(te)許經(jing)營(ying)管理辦法(fa)》關(guan)于應(ying)由(you)市(shi)場競爭機(ji)制來確定經(jing)營(ying)者(zhe)的(de)(de)相關(guan)規(gui)定，屬于濫用(yong)行(xing)(xing)(xing)政(zheng)權力(li)排除市(shi)場原有同業(ye)競爭者(zhe)的(de)(de)行(xing)(xing)(xing)為，應(ying)當認定該(gai)特(te)(te)許經(jing)營(ying)許可(ke)行(xing)(xing)(xing)為違法(fa)。但(dan)考慮到(dao)本案涉及(ji)公(gong)共利(li)益，若撤銷該(gai)許可(ke)將(jiang)會給汕(shan)(shan)尾(wei)(wei)市(shi)公(gong)共交(jiao)通秩序造成(cheng)損害，給人(ren)民(min)(min)群眾的(de)(de)出行(xing)(xing)(xing)帶來不(bu)便，遂(sui)改判(pan)(pan)：撤銷一(yi)(yi)審(shen)判(pan)(pan)決，確認汕(shan)(shan)尾(wei)(wei)市(shi)政(zheng)府(fu)實施涉案特(te)(te)許經(jing)營(ying)權許可(ke)行(xing)(xing)(xing)為違法(fa)，但(dan)保留其法(fa)律效(xiao)力(li)。
（三）典型意義
行(xing)(xing)政(zheng)機(ji)(ji)關濫用行(xing)(xing)政(zheng)權(quan)(quan)(quan)力排除(chu)、限制(zhi)(zhi)(zhi)競(jing)爭(zheng)(zheng)是我(wo)國反壟斷(duan)(duan)法明(ming)確(que)禁止的(de)行(xing)(xing)為。在(zai)基(ji)礎設施和公用事業管理領域(yu)，地方政(zheng)府較(jiao)常以授予(yu)獨家特(te)許(xu)(xu)經(jing)(jing)(jing)營(ying)權(quan)(quan)(quan)為對價，吸引(yin)、鼓勵和引(yin)導更多優質(zhi)社會(hui)資本參(can)與(yu)相關投資和管理，以提高(gao)公共服務的(de)質(zhi)量和效(xiao)率。由于反壟斷(duan)(duan)法的(de)相關規定(ding)較(jiao)為原則(ze)，加(jia)上(shang)獨家特(te)許(xu)(xu)經(jing)(jing)(jing)營(ying)許(xu)(xu)可(ke)本身(shen)具(ju)有排他(ta)性(xing)，因此在(zai)特(te)許(xu)(xu)經(jing)(jing)(jing)營(ying)許(xu)(xu)可(ke)糾紛案(an)中，如何(he)對行(xing)(xing)政(zheng)性(xing)限制(zhi)(zhi)(zhi)競(jing)爭(zheng)(zheng)行(xing)(xing)為進(jin)行(xing)(xing)審查認定(ding)難度(du)較(jiao)大(da)。行(xing)(xing)政(zheng)機(ji)(ji)關違(wei)反法律、法規、規章的(de)規定(ding)，未經(jing)(jing)(jing)公平、公開、公正的(de)競(jing)爭(zheng)(zheng)機(ji)(ji)制(zhi)(zhi)(zhi)，未按(an)法定(ding)程序實施或者故意(yi)設置不合理的(de)條件，指(zhi)定(ding)特(te)許(xu)(xu)經(jing)(jing)(jing)營(ying)者，排除(chu)、限制(zhi)(zhi)(zhi)同一市場其他(ta)同業經(jing)(jing)(jing)營(ying)者的(de)公平競(jing)爭(zheng)(zheng)權(quan)(quan)(quan)和參(can)與(yu)權(quan)(quan)(quan)，損害消費(fei)者的(de)自主(zhu)選擇權(quan)(quan)(quan)，屬于反壟斷(duan)(duan)法上(shang)所規制(zhi)(zhi)(zhi)的(de)行(xing)(xing)政(zheng)性(xing)限制(zhi)(zhi)(zhi)競(jing)爭(zheng)(zheng)行(xing)(xing)為，應當確(que)認其違(wei)法，以保護各種市場主(zhu)體平等(deng)參(can)與(yu)市場競(jing)爭(zheng)(zheng)。
六、新泰市海納鹽業有限公司訴原新泰市鹽務局行政處罰案
（一）案情介紹
2014年5月15日，原新泰(tai)市(shi)鹽(yan)(yan)務局在(zai)執法(fa)檢查過程中發現新泰(tai)市(shi)海納鹽(yan)(yan)業(ye)(ye)有(you)限公(gong)(gong)司(si)(si)（以下簡(jian)稱海納公(gong)(gong)司(si)(si)）涉嫌違(wei)規(gui)(gui)購(gou)進(jin)工(gong)業(ye)(ye)用鹽(yan)(yan)。經調查，原新泰(tai)市(shi)鹽(yan)(yan)務局認定該公(gong)(gong)司(si)(si)違(wei)規(gui)(gui)購(gou)進(jin)工(gong)業(ye)(ye)用鹽(yan)(yan)52噸(dun)，違(wei)反了《山(shan)東省鹽(yan)(yan)業(ye)(ye)管(guan)理條例(li)(li)》第二十一條“禁止(zhi)任何單(dan)位和個(ge)人違(wei)反本條例(li)(li)規(gui)(gui)定擅自購(gou)進(jin)鹽(yan)(yan)產品”的規(gui)(gui)定，故根(gen)據(ju)《山(shan)東省鹽(yan)(yan)業(ye)(ye)管(guan)理條例(li)(li)》第四(si)十四(si)條之規(gui)(gui)定作出行(xing)政(zheng)處罰決(jue)(jue)定，決(jue)(jue)定沒收(shou)該公(gong)(gong)司(si)(si)工(gong)業(ye)(ye)鹽(yan)(yan)52噸(dun)，罰款(kuan)58000元。海納公(gong)(gong)司(si)(si)不服(fu)，提起訴(su)訟(song)要求撤銷該行(xing)政(zheng)處罰決(jue)(jue)定。
（二）裁判結果
山(shan)東(dong)省(sheng)(sheng)新泰市(shi)(shi)人民法院(yuan)一(yi)審(shen)認為(wei)(wei)，海納公(gong)司購買工業用鹽(yan)的行為(wei)(wei)違反了《山(shan)東(dong)省(sheng)(sheng)鹽(yan)業管理條(tiao)例(li)》第二(er)十一(yi)條(tiao)的規定，原新泰市(shi)(shi)鹽(yan)務局(ju)依據(ju)《山(shan)東(dong)省(sheng)(sheng)鹽(yan)業管理條(tiao)例(li)》有關(guan)規定作出的行政處罰決定并無不(bu)當，故判(pan)決駁(bo)回了該公(gong)司的訴訟請(qing)(qing)求。山(shan)東(dong)省(sheng)(sheng)泰安市(shi)(shi)中級人民法院(yuan)二(er)審(shen)維持(chi)一(yi)審(shen)判(pan)決。海納公(gong)司不(bu)服，向(xiang)山(shan)東(dong)省(sheng)(sheng)高級人民法院(yuan)申請(qing)(qing)再審(shen)。
山東省高級人民法(fa)(fa)院經審理(li)(li)(li)(li)認為，地方(fang)性法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)與法(fa)(fa)律(lv)(lv)(lv)(lv)、行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)不一致的(de)(de)(de)，應當根據法(fa)(fa)律(lv)(lv)(lv)(lv)和(he)(he)行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)的(de)(de)(de)規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)判斷被訴行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)處(chu)(chu)(chu)罰決(jue)定(ding)(ding)是否正(zheng)確。《中華人民共和(he)(he)國(guo)(guo)行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)處(chu)(chu)(chu)罰法(fa)(fa)》第(di)十一條規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)，法(fa)(fa)律(lv)(lv)(lv)(lv)、行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)對(dui)(dui)違(wei)法(fa)(fa)行(xing)(xing)(xing)(xing)(xing)(xing)為已(yi)經作(zuo)(zuo)(zuo)出行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)處(chu)(chu)(chu)罰規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)，地方(fang)性法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)需(xu)要作(zuo)(zuo)(zuo)出具體(ti)規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)的(de)(de)(de)，必須在法(fa)(fa)律(lv)(lv)(lv)(lv)、行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)的(de)(de)(de)給予行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)處(chu)(chu)(chu)罰的(de)(de)(de)行(xing)(xing)(xing)(xing)(xing)(xing)為、種(zhong)類和(he)(he)幅(fu)度的(de)(de)(de)范(fan)(fan)圍(wei)內規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)。結合(he)全國(guo)(guo)人民代(dai)表大會(hui)(hui)常務委員(yuan)會(hui)(hui)法(fa)(fa)制工作(zuo)(zuo)(zuo)委員(yuan)會(hui)(hui)《關于(yu)(yu)地方(fang)性法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)對(dui)(dui)法(fa)(fa)律(lv)(lv)(lv)(lv)中沒有規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)的(de)(de)(de)行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)處(chu)(chu)(chu)罰行(xing)(xing)(xing)(xing)(xing)(xing)為可否作(zuo)(zuo)(zuo)出補充規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)問(wen)題的(de)(de)(de)答復》的(de)(de)(de)精神，對(dui)(dui)于(yu)(yu)該(gai)條款的(de)(de)(de)正(zheng)確理(li)(li)(li)(li)解應當是“第(di)一，國(guo)(guo)家已(yi)經有法(fa)(fa)律(lv)(lv)(lv)(lv)、行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)的(de)(de)(de)，地方(fang)性法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)可以(yi)結合(he)本(ben)地情(qing)況予以(yi)具體(ti)化，但(dan)是必須在法(fa)(fa)律(lv)(lv)(lv)(lv)、行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)給予行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)處(chu)(chu)(chu)罰的(de)(de)(de)行(xing)(xing)(xing)(xing)(xing)(xing)為、種(zhong)類和(he)(he)幅(fu)度的(de)(de)(de)范(fan)(fan)圍(wei)內規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)。第(di)二(er)，在國(guo)(guo)家尚未(wei)制定(ding)(ding)法(fa)(fa)律(lv)(lv)(lv)(lv)、行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)的(de)(de)(de)情(qing)況下，地方(fang)性法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)可以(yi)設定(ding)(ding)除限制人身自由、吊銷企業(ye)(ye)營業(ye)(ye)執照以(yi)外(wai)的(de)(de)(de)行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)處(chu)(chu)(chu)罰。”為加強(qiang)鹽業(ye)(ye)管(guan)理(li)(li)(li)(li)，《鹽業(ye)(ye)管(guan)理(li)(li)(li)(li)條例(li)》這(zhe)一行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)對(dui)(dui)違(wei)反該(gai)條例(li)的(de)(de)(de)行(xing)(xing)(xing)(xing)(xing)(xing)為設定(ding)(ding)了相(xiang)應的(de)(de)(de)行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)處(chu)(chu)(chu)罰，但(dan)對(dui)(dui)鹽業(ye)(ye)公(gong)司之外(wai)的(de)(de)(de)其他企業(ye)(ye)購買經營工業(ye)(ye)用(yong)鹽的(de)(de)(de)行(xing)(xing)(xing)(xing)(xing)(xing)為沒有設定(ding)(ding)行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)處(chu)(chu)(chu)罰。本(ben)案中，原新泰市(shi)鹽務局依據地方(fang)性法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)對(dui)(dui)海(hai)納公(gong)司購買工業(ye)(ye)用(yong)鹽的(de)(de)(de)行(xing)(xing)(xing)(xing)(xing)(xing)為作(zuo)(zuo)(zuo)出行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)處(chu)(chu)(chu)罰決(jue)定(ding)(ding)，超出了《鹽業(ye)(ye)管(guan)理(li)(li)(li)(li)條例(li)》規(gui)(gui)(gui)(gui)(gui)定(ding)(ding)的(de)(de)(de)給予行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)處(chu)(chu)(chu)罰行(xing)(xing)(xing)(xing)(xing)(xing)為的(de)(de)(de)范(fan)(fan)圍(wei)，遂判決(jue)予以(yi)撤銷一、二(er)審法(fa)(fa)院判決(jue)和(he)(he)被訴行(xing)(xing)(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)(zheng)處(chu)(chu)(chu)罰決(jue)定(ding)(ding)。
（三）典型意義
鹽(yan)資源作為(wei)關系國(guo)計民(min)生(sheng)的(de)重要(yao)物資，鹽(yan)業(ye)行(xing)(xing)(xing)政(zheng)(zheng)主管(guan)(guan)(guan)部門應(ying)當依法依規(gui)(gui)對(dui)相關生(sheng)產、經(jing)營活動(dong)進行(xing)(xing)(xing)監管(guan)(guan)(guan)，深化“放管(guan)(guan)(guan)服”改革，滿足市(shi)場(chang)和企業(ye)發(fa)展需求。《鹽(yan)業(ye)管(guan)(guan)(guan)理(li)條例(li)》作為(wei)規(gui)(gui)范(fan)鹽(yan)業(ye)管(guan)(guan)(guan)理(li)領域的(de)行(xing)(xing)(xing)政(zheng)(zheng)法規(gui)(gui)，對(dui)違(wei)反該條例(li)的(de)行(xing)(xing)(xing)為(wei)設定(ding)(ding)了(le)(le)相應(ying)的(de)行(xing)(xing)(xing)政(zheng)(zheng)處罰(fa)，但對(dui)鹽(yan)業(ye)公司(si)之外的(de)其他(ta)企業(ye)購買(mai)經(jing)營工業(ye)用(yong)鹽(yan)的(de)行(xing)(xing)(xing)為(wei)沒有設定(ding)(ding)行(xing)(xing)(xing)政(zheng)(zheng)處罰(fa)，地(di)方性法規(gui)(gui)不(bu)能(neng)對(dui)該行(xing)(xing)(xing)為(wei)設定(ding)(ding)行(xing)(xing)(xing)政(zheng)(zheng)處罰(fa)，鹽(yan)業(ye)行(xing)(xing)(xing)政(zheng)(zheng)主管(guan)(guan)(guan)部門不(bu)能(neng)超出(chu)《鹽(yan)業(ye)管(guan)(guan)(guan)理(li)條例(li)》規(gui)(gui)定(ding)(ding)的(de)給予行(xing)(xing)(xing)政(zheng)(zheng)處罰(fa)行(xing)(xing)(xing)為(wei)的(de)范(fan)圍作出(chu)行(xing)(xing)(xing)政(zheng)(zheng)處罰(fa)決定(ding)(ding)。本(ben)案的(de)典型意義在于，人民(min)法院通過(guo)再(zai)審審查程序(xu)明(ming)確了(le)(le)設定(ding)(ding)行(xing)(xing)(xing)政(zheng)(zheng)處罰(fa)的(de)權限，彰顯了(le)(le)司(si)法的(de)監督糾錯功能(neng)，保(bao)護了(le)(le)企業(ye)正(zheng)常的(de)生(sheng)產經(jing)營權，有利于進一步激發(fa)市(shi)場(chang)活力，促進民(min)營經(jing)濟(ji)健(jian)康發(fa)展。
七、廣州市淦燦貿易有限公司訴原韶關市新豐縣工商行政管理局工商行政登記案
(一)基本案情
2017年11月17日，韶(shao)關(guan)市(shi)新(xin)(xin)(xin)豐(feng)(feng)(feng)縣人民(min)政(zheng)府發(fa)布了《關(guan)于進(jin)一步規范縣城集(ji)貿(mao)市(shi)場(chang)管(guan)(guan)理(li)(li)的通告(gao)》（以(yi)下(xia)簡(jian)稱(cheng)(cheng)《通告(gao)》），告(gao)知凡肉(rou)類(lei)、蔬(shu)菜(cai)類(lei)等(deng)經(jing)營(ying)者一律進(jin)入市(shi)場(chang)經(jing)營(ying)，禁止在集(ji)貿(mao)市(shi)場(chang)外擺攤設點、流動(dong)、開(kai)店鋪經(jing)營(ying)肉(rou)菜(cai)類(lei)行(xing)(xing)為。2017年12月26日，廣(guang)州(zhou)市(shi)淦燦(can)貿(mao)易有(you)限(xian)公(gong)(gong)司(si)(si)(si)（以(yi)下(xia)簡(jian)稱(cheng)(cheng)淦燦(can)公(gong)(gong)司(si)(si)(si)）向原(yuan)韶(shao)關(guan)市(shi)新(xin)(xin)(xin)豐(feng)(feng)(feng)縣工商(shang)(shang)行(xing)(xing)政(zheng)管(guan)(guan)理(li)(li)局（以(yi)下(xia)簡(jian)稱(cheng)(cheng)新(xin)(xin)(xin)豐(feng)(feng)(feng)工商(shang)(shang)局）申請登(deng)(deng)記設立廣(guang)州(zhou)市(shi)淦燦(can)貿(mao)易有(you)限(xian)公(gong)(gong)司(si)(si)(si)新(xin)(xin)(xin)豐(feng)(feng)(feng)三(san)分(fen)公(gong)(gong)司(si)(si)(si)，經(jing)營(ying)場(chang)所(suo)為新(xin)(xin)(xin)豐(feng)(feng)(feng)縣豐(feng)(feng)(feng)城街道辦(ban)(ban)事(shi)處(chu)人民(min)西路93號09、10門店，經(jing)營(ying)范圍包括批發(fa)、零售鮮(xian)肉(rou)。2018年1月11日，新(xin)(xin)(xin)豐(feng)(feng)(feng)工商(shang)(shang)局以(yi)淦燦(can)公(gong)(gong)司(si)(si)(si)的申請不(bu)符合《廣(guang)東省(sheng)商(shang)(shang)事(shi)登(deng)(deng)記條例》（以(yi)下(xia)簡(jian)稱(cheng)(cheng)《條例》）第十(shi)九條第二(er)款、《韶(shao)關(guan)市(shi)農貿(mao)市(shi)場(chang)管(guan)(guan)理(li)(li)暫(zan)行(xing)(xing)辦(ban)(ban)法》第三(san)十(shi)九條（以(yi)下(xia)簡(jian)稱(cheng)(cheng)《暫(zan)行(xing)(xing)辦(ban)(ban)法》）以(yi)及《通告(gao)》等(deng)規定為由(you)，作出(chu)新(xin)(xin)(xin)工商(shang)(shang)駁(bo)字〔2018〕第1號《登(deng)(deng)記駁(bo)回(hui)通知書》（以(yi)下(xia)簡(jian)稱(cheng)(cheng)《登(deng)(deng)記駁(bo)回(hui)通知書》），決定不(bu)予登(deng)(deng)記。淦燦(can)公(gong)(gong)司(si)(si)(si)不(bu)服訴至法院，請求撤銷新(xin)(xin)(xin)豐(feng)(feng)(feng)工商(shang)(shang)局作出(chu)的《登(deng)(deng)記駁(bo)回(hui)通知書》。
（二）裁判結果
廣東(dong)省韶(shao)關(guan)(guan)市(shi)武(wu)江區(qu)(qu)(qu)人(ren)民(min)法(fa)院一(yi)審(shen)認為(wei)(wei)，淦燦公(gong)(gong)(gong)司(si)(si)的(de)(de)申請事(shi)項，不(bu)符合(he)《暫(zan)行辦(ban)(ban)法(fa)》第三(san)十(shi)九(jiu)(jiu)條和《通(tong)告》的(de)(de)規(gui)定，新豐(feng)(feng)(feng)工(gong)商(shang)(shang)(shang)局(ju)(ju)作(zuo)(zuo)出(chu)(chu)(chu)的(de)(de)《登(deng)(deng)記駁回(hui)通(tong)知書》合(he)法(fa)，遂判決(jue)駁回(hui)淦燦公(gong)(gong)(gong)司(si)(si)的(de)(de)訴訟請求。淦燦公(gong)(gong)(gong)司(si)(si)不(bu)服，提起上(shang)訴。廣東(dong)省韶(shao)關(guan)(guan)市(shi)中級(ji)人(ren)民(min)法(fa)院二審(shen)認為(wei)(wei)，新豐(feng)(feng)(feng)工(gong)商(shang)(shang)(shang)局(ju)(ju)作(zuo)(zuo)出(chu)(chu)(chu)的(de)(de)《登(deng)(deng)記駁回(hui)通(tong)知書》依據是(shi)《暫(zan)行辦(ban)(ban)法(fa)》第三(san)十(shi)九(jiu)(jiu)條、《通(tong)告》以(yi)(yi)(yi)及在(zai)訴訟期間提供的(de)(de)《韶(shao)關(guan)(guan)市(shi)商(shang)(shang)(shang)事(shi)主(zhu)體(ti)住所(suo)登(deng)(deng)記管(guan)理辦(ban)(ban)法(fa)》（以(yi)(yi)(yi)下簡稱《管(guan)理辦(ban)(ban)法(fa)》）的(de)(de)規(gui)定，但上(shang)述規(gui)定并(bing)未將新豐(feng)(feng)(feng)縣豐(feng)(feng)(feng)城(cheng)街(jie)道人(ren)民(min)西(xi)路93號09、10門店列入禁(jin)(jin)設(she)(she)區(qu)(qu)(qu)目(mu)錄，不(bu)能作(zuo)(zuo)為(wei)(wei)新豐(feng)(feng)(feng)工(gong)商(shang)(shang)(shang)局(ju)(ju)出(chu)(chu)(chu)具《登(deng)(deng)記駁回(hui)通(tong)知書》的(de)(de)依據。根據《條例》第十(shi)九(jiu)(jiu)條第二款：“地(di)(di)級(ji)以(yi)(yi)(yi)上(shang)市(shi)人(ren)民(min)政(zheng)府(fu)公(gong)(gong)(gong)布(bu)經(jing)(jing)營(ying)(ying)場所(suo)禁(jin)(jin)設(she)(she)區(qu)(qu)(qu)域(yu)(yu)目(mu)錄的(de)(de)，商(shang)(shang)(shang)事(shi)主(zhu)體(ti)不(bu)得(de)以(yi)(yi)(yi)禁(jin)(jin)設(she)(she)區(qu)(qu)(qu)域(yu)(yu)目(mu)錄所(suo)列的(de)(de)場所(suo)作(zuo)(zuo)為(wei)(wei)住所(suo)、經(jing)(jing)營(ying)(ying)場所(suo)”的(de)(de)規(gui)定，地(di)(di)級(ji)以(yi)(yi)(yi)上(shang)市(shi)人(ren)民(min)政(zheng)府(fu)是(shi)經(jing)(jing)營(ying)(ying)場所(suo)禁(jin)(jin)設(she)(she)區(qu)(qu)(qu)域(yu)(yu)目(mu)錄的(de)(de)公(gong)(gong)(gong)布(bu)主(zhu)體(ti)，韶(shao)關(guan)(guan)市(shi)新豐(feng)(feng)(feng)縣人(ren)民(min)政(zheng)府(fu)屬于縣級(ji)人(ren)民(min)政(zheng)府(fu)，無權公(gong)(gong)(gong)布(bu)經(jing)(jing)營(ying)(ying)場所(suo)禁(jin)(jin)設(she)(she)區(qu)(qu)(qu)域(yu)(yu)，《通(tong)告》不(bu)能作(zuo)(zuo)為(wei)(wei)《登(deng)(deng)記駁回(hui)通(tong)知書》的(de)(de)依據。新豐(feng)(feng)(feng)工(gong)商(shang)(shang)(shang)局(ju)(ju)也并(bing)未舉證證實韶(shao)關(guan)(guan)市(shi)人(ren)民(min)政(zheng)府(fu)已公(gong)(gong)(gong)布(bu)新豐(feng)(feng)(feng)縣經(jing)(jing)營(ying)(ying)場所(suo)禁(jin)(jin)設(she)(she)區(qu)(qu)(qu)域(yu)(yu)目(mu)錄。因此，二審(shen)法(fa)院判決(jue)：撤(che)銷一(yi)審(shen)判決(jue)；撤(che)銷新豐(feng)(feng)(feng)工(gong)商(shang)(shang)(shang)局(ju)(ju)作(zuo)(zuo)出(chu)(chu)(chu)的(de)(de)《登(deng)(deng)記駁回(hui)通(tong)知書》，并(bing)責令新豐(feng)(feng)(feng)工(gong)商(shang)(shang)(shang)局(ju)(ju)對(dui)淦燦公(gong)(gong)(gong)司(si)(si)的(de)(de)申請重新作(zuo)(zuo)出(chu)(chu)(chu)行政(zheng)行為(wei)(wei)。
（三）典型意義
經(jing)營(ying)場(chang)所是(shi)企(qi)(qi)業從事經(jing)營(ying)活動的(de)(de)(de)(de)(de)平臺，關系(xi)到企(qi)(qi)業的(de)(de)(de)(de)(de)競爭和(he)發展，不(bu)能隨意(yi)被限(xian)制(zhi)。政(zheng)(zheng)(zheng)(zheng)府(fu)因(yin)為(wei)(wei)城市規劃、經(jing)濟發展和(he)公共利(li)益的(de)(de)(de)(de)(de)需要，依(yi)法(fa)適當限(xian)定經(jing)營(ying)地點，有(you)利(li)于建(jian)設衛(wei)生(sheng)文(wen)明城市、提升群眾的(de)(de)(de)(de)(de)居住(zhu)環境和(he)生(sheng)活品位。但(dan)權力的(de)(de)(de)(de)(de)行(xing)(xing)(xing)(xing)使不(bu)能因(yin)為(wei)(wei)創(chuang)建(jian)衛(wei)生(sheng)文(wen)明城市等需要便不(bu)加限(xian)制(zhi)，必須以(yi)法(fa)律(lv)、法(fa)規的(de)(de)(de)(de)(de)明確規定為(wei)(wei)限(xian)。《條例》第十九條第二款明確授權地級以(yi)上市人(ren)民政(zheng)(zheng)(zheng)(zheng)府(fu)以(yi)禁(jin)(jin)(jin)設區域目(mu)錄(lu)的(de)(de)(de)(de)(de)方式，限(xian)定經(jing)營(ying)場(chang)所禁(jin)(jin)(jin)設區域。因(yin)此，行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)機關未(wei)經(jing)法(fa)律(lv)、法(fa)規授權作出的(de)(de)(de)(de)(de)涉(she)及禁(jin)(jin)(jin)設區域的(de)(de)(de)(de)(de)規范性文(wen)件(jian)，不(bu)能作為(wei)(wei)人(ren)民法(fa)院(yuan)(yuan)審理行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)案件(jian)的(de)(de)(de)(de)(de)依(yi)據(ju)。本案新(xin)豐(feng)工商(shang)局作出行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)行(xing)(xing)(xing)(xing)為(wei)(wei)的(de)(de)(de)(de)(de)依(yi)據(ju)，為(wei)(wei)《暫行(xing)(xing)(xing)(xing)辦法(fa)》的(de)(de)(de)(de)(de)規定，但(dan)該辦法(fa)與新(xin)豐(feng)工商(shang)局在(zai)訴訟期間提供的(de)(de)(de)(de)(de)《管(guan)理辦法(fa)》均未(wei)將涉(she)案企(qi)(qi)業的(de)(de)(de)(de)(de)經(jing)營(ying)地點列入禁(jin)(jin)(jin)設區域目(mu)錄(lu)，據(ju)此新(xin)豐(feng)工商(shang)局作出的(de)(de)(de)(de)(de)《登記駁回通知書》缺乏法(fa)律(lv)依(yi)據(ju)，依(yi)法(fa)應(ying)予撤銷。本案的(de)(de)(de)(de)(de)典型意(yi)義(yi)在(zai)于，人(ren)民法(fa)院(yuan)(yuan)審理涉(she)及民營(ying)企(qi)(qi)業經(jing)營(ying)場(chang)地的(de)(de)(de)(de)(de)行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)案件(jian)時，在(zai)支持人(ren)民政(zheng)(zheng)(zheng)(zheng)府(fu)積(ji)極(ji)開(kai)展創(chuang)建(jian)衛(wei)生(sheng)文(wen)明城市活動的(de)(de)(de)(de)(de)同(tong)時，也應(ying)保護民營(ying)企(qi)(qi)業的(de)(de)(de)(de)(de)經(jing)營(ying)自主(zhu)權。
八、諸暨市勍田置業有限公司訴原諸暨市國土資源局國有土地使用權出讓合同糾紛案
（一）基本案情
2013年(nian)10月21日，諸暨(ji)(ji)市(shi)(shi)勍(qing)田(tian)(tian)置(zhi)業(ye)有限公(gong)司(si)(si)(si)(si)（以下簡稱勍(qing)田(tian)(tian)置(zhi)業(ye)公(gong)司(si)(si)(si)(si)）與(yu)原諸暨(ji)(ji)市(shi)(shi)國(guo)(guo)土(tu)(tu)(tu)資源局（以下簡稱諸暨(ji)(ji)國(guo)(guo)土(tu)(tu)(tu)局）簽(qian)訂國(guo)(guo)有建(jian)(jian)設用(yong)地(di)(di)使用(yong)權出(chu)(chu)讓(rang)(rang)(rang)合(he)同，受讓(rang)(rang)(rang)坐落于諸暨(ji)(ji)市(shi)(shi)暨(ji)(ji)陽(yang)街道郭家村地(di)(di)塊(kuai)商業(ye)用(yong)地(di)(di)國(guo)(guo)有建(jian)(jian)設用(yong)地(di)(di)使用(yong)權，雙方并對(dui)土(tu)(tu)(tu)地(di)(di)出(chu)(chu)讓(rang)(rang)(rang)金額(e)、土(tu)(tu)(tu)地(di)(di)交(jiao)付(fu)、規劃建(jian)(jian)設、違約責任等(deng)進行(xing)了約定(ding)，其中土(tu)(tu)(tu)地(di)(di)出(chu)(chu)讓(rang)(rang)(rang)款為(wei)(wei)5000萬(wan)元，土(tu)(tu)(tu)地(di)(di)交(jiao)付(fu)時(shi)間為(wei)(wei)2013年(nian)10月21日。嗣后，勍(qing)田(tian)(tian)置(zhi)業(ye)公(gong)司(si)(si)(si)(si)向諸暨(ji)(ji)國(guo)(guo)土(tu)(tu)(tu)局繳納了全部土(tu)(tu)(tu)地(di)(di)出(chu)(chu)讓(rang)(rang)(rang)金，但因出(chu)(chu)讓(rang)(rang)(rang)地(di)(di)塊(kuai)內尚有高壓線(xian)(xian)未(wei)(wei)搬遷，該公(gong)司(si)(si)(si)(si)未(wei)(wei)能入場施工。經勍(qing)田(tian)(tian)置(zhi)業(ye)公(gong)司(si)(si)(si)(si)多次要求，至(zhi)2016年(nian)4月底(di)，出(chu)(chu)讓(rang)(rang)(rang)地(di)(di)塊(kuai)內的(de)高壓線(xian)(xian)被遷移。勍(qing)田(tian)(tian)置(zhi)業(ye)公(gong)司(si)(si)(si)(si)認為(wei)(wei)諸暨(ji)(ji)國(guo)(guo)土(tu)(tu)(tu)局收(shou)取土(tu)(tu)(tu)地(di)(di)出(chu)(chu)讓(rang)(rang)(rang)金后，未(wei)(wei)能按時(shi)交(jiao)付(fu)符合(he)出(chu)(chu)讓(rang)(rang)(rang)條(tiao)件的(de)土(tu)(tu)(tu)地(di)(di)，應(ying)承(cheng)擔相應(ying)責任，起(qi)訴(su)要求諸暨(ji)(ji)國(guo)(guo)土(tu)(tu)(tu)局賠償其損(sun)失。
（二）裁判結果
浙江(jiang)省紹(shao)興市柯橋區人(ren)(ren)民法(fa)院一審認(ren)為，根據(ju)《閑(xian)置(zhi)(zhi)土地(di)(di)(di)處(chu)置(zhi)(zhi)辦法(fa)》（國(guo)(guo)土資(zi)源部令第53號）、《國(guo)(guo)土資(zi)源部關(guan)(guan)于(yu)加大閑(xian)置(zhi)(zhi)土地(di)(di)(di)處(chu)置(zhi)(zhi)力度的(de)(de)通知》（國(guo)(guo)土資(zi)電(dian)發〔2007〕36號）等土地(di)(di)(di)出(chu)(chu)讓(rang)的(de)(de)相關(guan)(guan)政(zheng)策的(de)(de)規(gui)定，國(guo)(guo)有建設用地(di)(di)(di)實行“凈地(di)(di)(di)”出(chu)(chu)讓(rang)，用于(yu)出(chu)(chu)讓(rang)的(de)(de)土地(di)(di)(di)應(ying)當是已完成建筑構筑物(wu)拆除、符合(he)通平條件，且(qie)在法(fa)律關(guan)(guan)系上(shang)權(quan)屬清晰，不(bu)(bu)存在權(quan)利(li)(li)限制的(de)(de)土地(di)(di)(di)。案涉出(chu)(chu)讓(rang)地(di)(di)(di)塊相應(ying)規(gui)劃圖(tu)明確(que)高(gao)壓線(xian)需(xu)遷移，但(dan)實際直至(zhi)2016年(nian)(nian)(nian)4月才遷移完畢。因此(ci)，諸暨國(guo)(guo)土局存在未按合(he)同(tong)(tong)約定交(jiao)付符合(he)開發條件“凈地(di)(di)(di)”之情形，應(ying)依法(fa)承擔違約責(ze)任(ren)，遂判決諸暨國(guo)(guo)土局賠(pei)付勍田置(zhi)(zhi)業(ye)公(gong)(gong)司(si)自2013年(nian)(nian)(nian)10月22日(ri)起至(zhi)2016年(nian)(nian)(nian)4月26日(ri)總價款5000萬元按中(zhong)國(guo)(guo)人(ren)(ren)民銀行同(tong)(tong)期同(tong)(tong)檔次(ci)貸款基準利(li)(li)率(lv)計算的(de)(de)利(li)(li)息損失(shi)部分(fen)（不(bu)(bu)超過8146458.33元），駁回(hui)勍田置(zhi)(zhi)業(ye)公(gong)(gong)司(si)的(de)(de)其他(ta)訴訟請求。諸暨國(guo)(guo)土局不(bu)(bu)服(fu)，提出(chu)(chu)上(shang)訴。
浙江(jiang)省紹興(xing)市中級(ji)人(ren)民(min)法院二(er)審認為，原諸(zhu)(zhu)(zhu)暨市規(gui)劃(hua)局(ju)向(xiang)勍(qing)田置業公司核發的(de)建(jian)設用(yong)地(di)(di)規(gui)劃(hua)許可證(zheng)載明，高壓(ya)線移(yi)位是案涉(she)地(di)(di)塊動工開發、實施規(gui)劃(hua)的(de)前提(ti)條件(jian)，也(ye)是諸(zhu)(zhu)(zhu)暨國(guo)土(tu)局(ju)按約交(jiao)付(fu)出(chu)讓土(tu)地(di)(di)的(de)基本要求(qiu)。因案涉(she)出(chu)讓地(di)(di)塊上的(de)高壓(ya)線直至2016年(nian)4月(yue)才遷移(yi)完(wan)畢，晚于雙方(fang)在出(chu)讓合同中約定的(de)土(tu)地(di)(di)交(jiao)付(fu)時間，一審法院據此判(pan)決(jue)(jue)諸(zhu)(zhu)(zhu)暨國(guo)土(tu)局(ju)承(cheng)擔相應違約責任，并無不當(dang)，遂判(pan)決(jue)(jue)駁回上訴，維持一審判(pan)決(jue)(jue)。二(er)審判(pan)決(jue)(jue)生效后，諸(zhu)(zhu)(zhu)暨國(guo)土(tu)局(ju)已履行生效判(pan)決(jue)(jue)確(que)定的(de)義(yi)務。
（三）典型意義
法治是最好(hao)的(de)(de)(de)營(ying)商(shang)環(huan)境，行(xing)(xing)(xing)政機關(guan)(guan)既是行(xing)(xing)(xing)政職權(quan)的(de)(de)(de)行(xing)(xing)(xing)使(shi)者，也是市場(chang)經濟的(de)(de)(de)參與者，更要(yao)依法行(xing)(xing)(xing)政、誠(cheng)實守信。本案在一定程(cheng)度上(shang)厘清了土地(di)出讓(rang)部(bu)門在進(jin)行(xing)(xing)(xing)國有(you)(you)土地(di)使(shi)用權(quan)出讓(rang)時(shi)，需要(yao)遵(zun)守的(de)(de)(de)相(xiang)關(guan)(guan)規定和(he)應當承擔(dan)的(de)(de)(de)合同義務(wu)。在監督行(xing)(xing)(xing)政機關(guan)(guan)依法行(xing)(xing)(xing)政的(de)(de)(de)同時(shi)，也依法保(bao)護(hu)(hu)了民(min)營(ying)企業產權(quan)，是行(xing)(xing)(xing)政審判保(bao)護(hu)(hu)非公(gong)有(you)(you)制市場(chang)主體權(quan)利、助推營(ying)商(shang)環(huan)境優化的(de)(de)(de)典型案例(li)。
九、夏高鳳訴原都江堰市國土資源局違法注銷集體土地使用權案
（一）基本案情
夏(xia)高(gao)鳳(feng)為(wei)都(dou)江(jiang)堰(yan)市龍池鎮紅色村2組村民，在該村擁有(you)住宅房屋一套，并于2008年10月28日(ri)取(qu)(qu)得(de)案涉《集(ji)體(ti)(ti)土(tu)(tu)地(di)(di)(di)(di)使(shi)(shi)用(yong)權證(zheng)(zheng)(zheng)》。2015年10月8日(ri)，原都(dou)江(jiang)堰(yan)市國土(tu)(tu)資(zi)源(yuan)局（以(yi)下簡稱(cheng)都(dou)江(jiang)堰(yan)國土(tu)(tu)局）以(yi)夏(xia)高(gao)鳳(feng)取(qu)(qu)得(de)土(tu)(tu)地(di)(di)(di)(di)使(shi)(shi)用(yong)權證(zheng)(zheng)(zheng)時的(de)申請資(zi)料與實際(ji)情況不(bu)符(fu)、存在以(yi)虛假資(zi)料騙取(qu)(qu)土(tu)(tu)地(di)(di)(di)(di)登記的(de)行(xing)為(wei)為(wei)由，要求夏(xia)高(gao)鳳(feng)在十日(ri)內(nei)將(jiang)土(tu)(tu)地(di)(di)(di)(di)使(shi)(shi)用(yong)權證(zheng)(zheng)(zheng)交至都(dou)江(jiang)堰(yan)市政務中心國土(tu)(tu)窗口(kou)并配(pei)合集(ji)體(ti)(ti)經濟組織辦(ban)理集(ji)體(ti)(ti)土(tu)(tu)地(di)(di)(di)(di)使(shi)(shi)用(yong)權注(zhu)銷(xiao)(xiao)登記，若逾期不(bu)辦(ban)理，將(jiang)公告注(zhu)銷(xiao)(xiao)案涉《集(ji)體(ti)(ti)土(tu)(tu)地(di)(di)(di)(di)使(shi)(shi)用(yong)權證(zheng)(zheng)(zheng)》。夏(xia)高(gao)鳳(feng)未(wei)在告知(zhi)期限(xian)內(nei)交回《集(ji)體(ti)(ti)土(tu)(tu)地(di)(di)(di)(di)使(shi)(shi)用(yong)權證(zheng)(zheng)(zheng)》，2015年11月10日(ri)都(dou)江(jiang)堰(yan)國土(tu)(tu)局作出(chu)《注(zhu)銷(xiao)(xiao)公告》，注(zhu)銷(xiao)(xiao)了夏(xia)高(gao)鳳(feng)的(de)集(ji)體(ti)(ti)土(tu)(tu)地(di)(di)(di)(di)使(shi)(shi)用(yong)權。夏(xia)高(gao)鳳(feng)不(bu)服該行(xing)為(wei)，訴(su)至法院。
（二）裁判結果
四川省(sheng)崇州市人(ren)(ren)民法(fa)(fa)院(yuan)一(yi)審認為(wei)：根據(ju)2008年2月1日(ri)起實施的(de)(de)(de)(de)《土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)登(deng)(deng)記(ji)(ji)辦(ban)(ban)法(fa)(fa)》（以(yi)下簡(jian)稱《辦(ban)(ban)法(fa)(fa)》）第(di)五(wu)十條(tiao)規(gui)定：“有下列情(qing)形(xing)之(zhi)一(yi)的(de)(de)(de)(de)，可直接辦(ban)(ban)理(li)(li)(li)(li)注(zhu)銷(xiao)(xiao)登(deng)(deng)記(ji)(ji):(一(yi))依法(fa)(fa)收回的(de)(de)(de)(de)國(guo)(guo)有土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)；(二)依法(fa)(fa)征收的(de)(de)(de)(de)農民集體(ti)土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)；(三(san))因(yin)人(ren)(ren)民法(fa)(fa)院(yuan)、仲(zhong)裁機構(gou)的(de)(de)(de)(de)生(sheng)效(xiao)法(fa)(fa)律文書致使(shi)(shi)原土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)權利(li)消滅，當(dang)(dang)(dang)事人(ren)(ren)未(wei)辦(ban)(ban)理(li)(li)(li)(li)注(zhu)銷(xiao)(xiao)登(deng)(deng)記(ji)(ji)的(de)(de)(de)(de)。”因(yin)此，除以(yi)上(shang)三(san)種情(qing)形(xing)土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)登(deng)(deng)記(ji)(ji)主(zhu)管部(bu)(bu)門(men)可直接辦(ban)(ban)理(li)(li)(li)(li)注(zhu)銷(xiao)(xiao)登(deng)(deng)記(ji)(ji)外，注(zhu)銷(xiao)(xiao)登(deng)(deng)記(ji)(ji)均應依土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)使(shi)(shi)用(yong)權人(ren)(ren)或(huo)他項(xiang)權人(ren)(ren)申請注(zhu)銷(xiao)(xiao)。都(dou)(dou)江(jiang)堰(yan)國(guo)(guo)土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)局(ju)(ju)(ju)在(zai)不具備上(shang)述三(san)種情(qing)形(xing)的(de)(de)(de)(de)情(qing)況下直接注(zhu)銷(xiao)(xiao)夏(xia)高(gao)鳳(feng)(feng)集體(ti)土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)使(shi)(shi)用(yong)權，沒有法(fa)(fa)律依據(ju)。根據(ju)《辦(ban)(ban)法(fa)(fa)》第(di)五(wu)十八條(tiao)規(gui)定：“國(guo)(guo)土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)資源行(xing)(xing)政主(zhu)管部(bu)(bu)門(men)發(fa)現土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)登(deng)(deng)記(ji)(ji)薄記(ji)(ji)載的(de)(de)(de)(de)事項(xiang)確有錯(cuo)誤的(de)(de)(de)(de)，應當(dang)(dang)(dang)報經(jing)人(ren)(ren)民政府批(pi)準(zhun)后(hou)(hou)進(jin)行(xing)(xing)更(geng)正登(deng)(deng)記(ji)(ji)，并(bing)書面(mian)通(tong)知當(dang)(dang)(dang)事人(ren)(ren)在(zai)規(gui)定期限內辦(ban)(ban)理(li)(li)(li)(li)更(geng)換(huan)或(huo)者(zhe)注(zhu)銷(xiao)(xiao)原土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)權利(li)證書的(de)(de)(de)(de)手(shou)續。當(dang)(dang)(dang)事人(ren)(ren)逾(yu)期不辦(ban)(ban)理(li)(li)(li)(li)的(de)(de)(de)(de)，國(guo)(guo)土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)資源行(xing)(xing)政主(zhu)管部(bu)(bu)門(men)報經(jing)人(ren)(ren)民政府批(pi)準(zhun)并(bing)公告后(hou)(hou)，原土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)權利(li)證書廢止”，即使(shi)(shi)夏(xia)高(gao)鳳(feng)(feng)土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)使(shi)(shi)用(yong)權證記(ji)(ji)載內容存在(zai)錯(cuo)誤，都(dou)(dou)江(jiang)堰(yan)國(guo)(guo)土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)局(ju)(ju)(ju)也(ye)應當(dang)(dang)(dang)在(zai)進(jin)行(xing)(xing)更(geng)正登(deng)(deng)記(ji)(ji)后(hou)(hou)予(yu)以(yi)更(geng)換(huan)或(huo)注(zhu)銷(xiao)(xiao)。因(yin)此，一(yi)審法(fa)(fa)院(yuan)判決(jue)確認都(dou)(dou)江(jiang)堰(yan)國(guo)(guo)土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)局(ju)(ju)(ju)注(zhu)銷(xiao)(xiao)夏(xia)高(gao)鳳(feng)(feng)集體(ti)土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)使(shi)(shi)用(yong)權的(de)(de)(de)(de)行(xing)(xing)政行(xing)(xing)為(wei)無效(xiao)，并(bing)責令都(dou)(dou)江(jiang)堰(yan)國(guo)(guo)土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)局(ju)(ju)(ju)在(zai)判決(jue)生(sheng)效(xiao)后(hou)(hou)十五(wu)日(ri)內為(wei)夏(xia)高(gao)鳳(feng)(feng)辦(ban)(ban)理(li)(li)(li)(li)恢復登(deng)(deng)記(ji)(ji)。判決(jue)后(hou)(hou)雙方均未(wei)上(shang)訴，都(dou)(dou)江(jiang)堰(yan)國(guo)(guo)土(tu)(tu)(tu)(tu)(tu)(tu)(tu)(tu)局(ju)(ju)(ju)為(wei)夏(xia)高(gao)鳳(feng)(feng)恢復了(le)登(deng)(deng)記(ji)(ji)。
（三）典型意義
實踐中(zhong)，因分不(bu)(bu)清(qing)“權(quan)(quan)(quan)(quan)”和“證(zheng)”的(de)(de)(de)關(guan)系(xi)，錯誤采用(yong)注銷“證(zheng)”的(de)(de)(de)方式注銷“土地使(shi)用(yong)權(quan)(quan)(quan)(quan)”的(de)(de)(de)現(xian)象(xiang)大量存在。依法(fa)(fa)登(deng)記(ji)的(de)(de)(de)土地所有(you)權(quan)(quan)(quan)(quan)和使(shi)用(yong)權(quan)(quan)(quan)(quan)受(shou)法(fa)(fa)律保護，任何(he)單位和個人不(bu)(bu)得侵(qin)犯。權(quan)(quan)(quan)(quan)利人只有(you)依法(fa)(fa)取得不(bu)(bu)動(dong)(dong)(dong)產后，才能進行(xing)不(bu)(bu)動(dong)(dong)(dong)產登(deng)記(ji)，不(bu)(bu)動(dong)(dong)(dong)產登(deng)記(ji)是擁(yong)有(you)合法(fa)(fa)不(bu)(bu)動(dong)(dong)(dong)產權(quan)(quan)(quan)(quan)利的(de)(de)(de)證(zheng)書。通(tong)過該案的(de)(de)(de)審理，厘清(qing)了先有(you)“權(quan)(quan)(quan)(quan)利”后有(you)“登(deng)記(ji)”，先有(you)“權(quan)(quan)(quan)(quan)利消失”才有(you)“注銷登(deng)記(ji)”的(de)(de)(de)關(guan)系(xi)，行(xing)政機(ji)關(guan)不(bu)(bu)能用(yong)“注銷登(deng)記(ji)”方式侵(qin)犯依法(fa)(fa)登(deng)記(ji)的(de)(de)(de)土地所有(you)權(quan)(quan)(quan)(quan)和使(shi)用(yong)權(quan)(quan)(quan)(quan)。
日期：2020-7-27 14:51:18 | 關閉 |
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