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Guiding Case No. 76: Pingxiang Yapeng Real Estate Development Co., Ltd. v. Land and Resources Bureau of Pingxiang City
指导案例76号:萍乡市亚鹏房地产开发有限公司诉萍乡市国土资源局不履行行政协议案
【法宝引证码】
  • Judgment date: 08-15-2014
  • Procedural status: Other
  • Date issued: 12-28-2016
 
  
Guiding Case No. 76: Pingxiang Yapeng Real Estate Development Co., Ltd. v. Land and Resources Bureau of Pingxiang City 

指导案例76号:萍乡市亚鹏房地产开发有限公司诉萍乡市国土资源局不履行行政协议案 

(Issued on December 28, 2016 as deliberated and adopted by the Judicial Committee of the Supreme People's Court) (最高人民法院审判委员会讨论通过2016年12月28日发布)

Keywords: administrative; administrative agreement; contract interpretation; judicial review; legal effect 关键词 行政/行政协议/合同解释/司法审查/法律效力
Key Points of Judgment 裁判要点
The interpretation of an administrative authority on the terms of an administrative agreement within the scope of its functions is legally binding on both parties to the agreement. Upon review by the people's court, the interpretation may serve as the basis for reviewing the administrative agreement in light of the actual circumstances. 行政机关在职权范围内对行政协议约定的条款进行的解释,对协议双方具有法律约束力,人民法院经过审查,根据实际情况,可以作为审查行政协议的依据。
Legal Provisions 相关法条
Article 12 of the Administrative Procedure Law of the People's Republic of China 中华人民共和国行政诉讼法》第12条
Basic Facts 基本案情
On January 13, 2004, entrusted by the United Meat Processing Plant of Pingxiang City and with the approval of defendant Land and Resources Bureau of Pingxiang City, the Land Purchase and Reservation Center of Pingxiang City published an announcement on the public transfer of the right to use the state-owned land through quotation on the Pingxiang Daily. It was specified in the announcement that the right to use the state-owned land of the plot (TG-0403) was to be publicly transferred through quotation in the land trading hall from January 30, 2004 to February 12, 2004, the plot was located in Wangongtang, Houfu Street, Anyuan District, Pingxiang City, the area of the land to be transferred was 23,173.3 square meters, the land to be developed was comprehensive commercial and residential land, the refrigeration workshops remained unchanged, the plot ratio was 2.6, and the land usage term was 50 years. On February 12, 2006, Pingxiang Yapeng Real Estate Development Co., Ltd. (hereinafter referred to as “Yapeng Company”) acquired the right to use the state-owned land of the plot (TG-0403) at the price of CNY 7.68 million by tender bidding and auction and on February 21, 2006, it concluded a Contract on the Transfer of the Right to Use the State-Owned Land with defendant Land and Resources Bureau of Pingxiang City. As agreed in the Contract, the purpose of the use of the transferred parcel of land was comprehensive commercial and residential land, with the refrigeration workshops remained unchanged; the fee for the transfer of the right to use land was CNY 331.42 per square meter and the total amount was CNY 7.68 million. On March 2, 2006, the Land and Resources Bureau of Pingxiang City issued two state-owned land use certificates (No. 43750 [2006], Land and Resources Bureau, Pingxiang) and (No. 43751 [2006], Land and Resources Bureau, Pingxiang) to Yapeng Company. In particular, in the land certificate (No. 43750 [2006], Land and Resources Bureau, Pingxiang), the land category was industrial land, the category of the right to use was transfer, the area of the right to use was 8,359 square meters; and in the land certificate (No. 43751 [2006], Land and Resources Bureau, Pingxiang), the land category was comprehensive commercial and residential land. According to Yapeng Company, the stipulation that “the refrigeration workshops remained unchanged” meant that the use functions of the refrigeration workshops other than their land nature would remain unchanged. Therefore, Yapeng Company required a change in the land category in one certificate from “industrial land” to “comprehensive commercial and residential land”; however, according to the Land and Resources Bureau of Pingxiang City, it meant that the refrigeration workshops would be transferred by remaining its land nature of industrial land. In addition, Yapeng Company paid the fees for the transfer of the right to use land on the basis that the land nature of such refrigeration workshops was industrial land. Therefore, the Land and Resources Bureau of Pingxiang City did not consent to the change in the purpose of land use. On July 30, 2012, the Planning Bureau of Pingxiang City issued a reply on issues concerning Requiring Interpretation of the Letter on the Plot of the United Meat Processing Plant of Pingxiang City to the Land Purchase and Reservation Center of Pingxiang City. The main content of the reply was as follows: In the planning conditions issued by the Planning Bureau of Pingxiang City on October 8, 2003, it was specified that the land nature of the plot was comprehensive commercial and residential land (with refrigeration workshops of about 7,300 square meters, here and below), but the refrigeration workshops remained unchanged. According to the control rules for this plot, the land use nature was residential (compatible with commercial). However, since the food refrigeration workshops in the plot were the only storage and fresh-keeping warehouses for agricultural products in Pingxiang City and they were also an important livelihood project, the use functions of the refrigeration workshops of about 7,300 square meters in the plot should temporarily be reserved and without the approval of the government or the relevant competent department, they may not be dismantled. On February 21, 2013, the Land and Resources Bureau of Pingxiang City gave a written reply to Yapeng Company that: (1) According to the planning conditions issued by the Planning Bureau of Pingxiang City and the actual circumstances of the parcel of land, your application for changing the land use purpose of the refrigeration workshops in the plot (TG-0403) from industrial land to commercial and residential land was approved. (2) Since the right to use the land of the refrigeration workshops in the parcel of land you acquired were transferred at the price of industrial land, in accordance with the provisions of the Urban Real Estate Administration Law of the People's Republic of China, if you applied for changing the land use purpose of the refrigeration workshops in the plot (TG-0403) from industrial land to commercial and residential land, you should pay the land transfer fees in arrears. The land transfer fees in arrears to be paid may be calculated by deducting the equivalent proportion from the estimated value of the comprehensive land (residential and commercial) at the time of transfer of the parcel of land, namely, CNY 2.97656 million x 70% = CNY 2.0836 million. (3) After the land use purpose of the refrigeration workshops was adjusted, the use functions of such refrigeration workshops may not be changed without the approval of the government of Pingxiang City. On March 10, 2013, Yapeng Company filed an administrative action with the People's Court of Anyuan District, Pingxiang City and required the Court to order that defendant should change the land category and purpose in the state-owned land use certificate (No. 43750 [2006], Land and Resources Bureau, Pingxiang) from “industrial land” to comprehensive commercial and residential land (with refrigeration workshops remained unchanged) and that the decision on payment of the land transfer fees in arrears of CNY 2.0836 million in item (2) of the Reply on the Land Use Purpose of the Plot (TG-0403) of Yapeng Real Estate Development Co., Ltd. given by defendant should be cancelled. 2004年1月13日,萍乡市土地收购储备中心受萍乡市肉类联合加工厂委托,经被告萍乡市国土资源局(以下简称市国土局)批准,在萍乡日报上刊登了国有土地使用权公开挂牌出让公告,定于2004年1月30日至2004年2月12日在土地交易大厅公开挂牌出让TG-0403号国有土地使用权,地块位于萍乡市安源区后埠街万公塘,土地出让面积为23173.3平方米,开发用地为商住综合用地,冷藏车间维持现状,容积率2.6,土地使用年限为50年。萍乡市亚鹏房地产开发有限公司(以下简称亚鹏公司)于2006年2月12日以投标竞拍方式并以人民币768万元取得了TG-0403号国有土地使用权,并于2006年2月21日与被告市国土局签订了《国有土地使用权出让合同》。合同约定出让宗地的用途为商住综合用地,冷藏车间维持现状。土地使用权出让金为每平方米331.42元,总额计人民币768万元。2006年3月2日,市国土局向亚鹏公司颁发了萍国用(2006)第43750号和萍国用(2006)第43751号两本国有土地使用证,其中萍国用(2006)第43750号土地证地类(用途)为工业,使用权类为出让,使用权面积为8359平方米,萍国字(2006)第43751号土地证地类为商住综合用地。对此,亚鹏公司认为约定的“冷藏车间维持现状”是维持冷藏库的使用功能,并非维持地类性质,要求将其中一证地类由“工业”更正为“商住综合”;但市国土局认为维持现状是指冷藏车间保留工业用地性质出让,且该公司也是按照冷藏车间为工业出让地缴纳的土地使用权出让金,故不同意更正土地用途。2012年7月30日,萍乡市规划局向萍乡市土地收购储备中心作出《关于要求解释〈关于萍乡市肉类联合加工厂地块的函〉》中有关问题的复函,主要内容是:我局在2003年10月8日出具规划条件中已明确了该地块用地性质为商住综合用地(冷藏车间约7300平方米,下同)但冷藏车间维持现状。根据该地块控规,其用地性质为居住(兼容商业),但由于地块内的食品冷藏车间是目前我市唯一的农产品储备保鲜库,也是我市重要的民生工程项目,因此,暂时保留地块内约7300平方米冷藏库的使用功能,未经政府或相关主管部门批准不得拆除。2013年2月21日,市国土局向亚鹏书面答复:一、根据市规划局出具的规划条件和宗地实际情况,同意贵公司申请TG-0403号地块中冷藏车间用地的土地用途由工业用地变更为商住用地。二、由于贵公司取得该宗地中冷藏车间用地使用权是按工业用地价格出让的,根据《中华人民共和国城市房地产管理法》之规定,贵公司申请TG-0403号地块中冷藏车间用地的土地用途由工业用地变更为商住用地,应补交土地出让金。补交的土地出让金可按该宗地出让时的综合用地(住宅、办公)评估价值减去的同等比例计算,即297.656万元*70%=208.36万元。三、冷藏车间用地的土地用途调整后,其使用功能未经市政府批准不得改变。亚鹏公司于2013年3月10日向法院提起行政诉讼,要求判令被告将萍国用(2006)第43750号国有土地使用证上的地类用途由“工业”更正为商住综合用地(冷藏车间维持现状)。撤销被告“关于对市亚鹏房地产有限公司TG-0403号地块有关土地用途问题的答复”中第二项关于补交土地出让金208.36万元的决定。
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