海南省海口市中级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼01行终124号
上诉人（原审被告）海口市国土资源局，住所地海口市长滨二路市政府第二行政办公区。
法定代表人韩艺师，局长。
委托代理人张礼，海南唐海律师事务所律师。
委托代理人明占伟，系海口市国土资源局工作人员。
被上诉人（原审原告）海南金鹏物业发展公司，住所地海南省三亚市创业大厦A座702室。
法定代表人文艺（又名彭国华），董事长。
委托代理人林圣全，海南追根律师事务所律师
上诉人海口市国土资源局（以下简称国土局）与被上诉人海南金鹏物业发展公司（以下简称金鹏物业）行政协议纠纷一案，因上诉人市国土局不服海口市秀英区人民法院（2017）琼0105行初12号行政判决，向本院提起上诉，本院依法组成合议庭，对本案进行了审理，现已审理终结。
原审法院经审理查明：金鹏物业于1992年10月27日经国家工商总局注册成立，2001年11月8日被海南省工商行政管理局吊销营业执照，法定代表人文艺，曾用名彭国华。1992年9月28日，金鹏物业与案外人海南金龙旅业有限公司（以下简称金龙公司）签订《联营转让合同书》，约定金龙公司向金鹏物业转让位于××县土地。金龙公司负责办理国土批文、土地转让等手续，金鹏物业向金龙公司支付土地款并办理规划、报建等手续。1992年11月26日，原琼山县计划委员会作出琼计字（1992）428号《关于海南金龙旅业有限公司兴建”龙昆花园”项目的批复》，同意金龙公司在涉案土地上建设”龙昆花园”项目。1993年2月12日，金鹏物业通过建设银行向琼山县国土局汇款征地款人民币300万元，同年2月13日，琼山县国土局向金鹏物业开具收到预付地价款300万元的收据。同年5月29日,琼山县建设委员会向金鹏物业颁发了编号为93-0066《建设用地规划许可证》，同年6月18日琼山县建设委员会审批通过了金鹏物业建筑安装工程的报建，并向金鹏物业下发了（琼）基建管字第145号《建筑许可证》，同年6月21日琼山县计划委员会向金鹏物业下发了琼计字（1993）285号”琼山县计划委员会关于下达大厦、商住楼基建项目计划的通知”,同意金鹏物业兴建的涉案项目列入琼山县基建项目计划。金鹏物业在支付300万元土地款后，至今并未取得涉案土地。2012年5月10日，金鹏物业的法定代表人文艺委托案外人文佑树向石首市公安局报案称金龙公司法定代表人王某涉嫌合同诈骗，公安机关受理后至今尚未立案。2016年7月8日，金鹏物业委托律师向被告发出《律师函》，要求被告返还土地款及相应利息。2016年11月4日，金鹏物业向本院提起民事诉讼，要求国土局返还土地款及利息，秀英区人民法院作出（2016）琼0105民初3093号民事裁定书，以本案属于行政协议为由，裁定驳回金鹏物业的起诉。金鹏物业为维护其合法权益，遂向秀英区法院提起行政诉讼。
另查明，湖北省武汉市中级人民法院于2001年5月21日作出（2001）武刑初字第141号刑事判决书，判决金鹏物业法定代表人文艺犯合同诈骗罪，判处无期徒刑。2015年2月11日，原告法定代表人文艺被裁定释放。
原审法院认为，本案当事人争议的焦点为：一、金鹏物业是否具有法人的主体资格，是否有权提起本案诉讼；二、金鹏物业的起诉是否超过诉讼时效；三、国土局是否应退还原告300万元土地款及支付相应利息。首先，根据《最高人民法院关于企业法人营业执照被吊销后，其民事诉讼地位如何确定的复函》的规定，企业法人被吊销营业执照后至被注销登记前，该企业法人仍视为存续，可以以自己的名义进行诉讼活动。本案中，金鹏物业的公司状态为吊销但并未注销，所以原告具有法人的主体资格，其有权提起本案的诉讼；其次，金鹏物业的起诉未超过诉讼时效。根据《最高人民法院关于民事案件适用诉讼时效制度若干问题的规定》，当事人向公安机关报案，请求保护其民事权利的，诉讼时效从报案之日起中断。本案中，金鹏物业公司的法定代表人在2001年因合同诈骗罪被羁押至2015年，其在2012年获悉涉案土地正在开发建设，土地已不可能向其交付的情况后即委托案外人文佑树向公安机关报案，称案外人王某涉嫌诈骗包括涉案土地款在内的1880万元征地款，该行为导致本案诉讼时效中断。同时，根据《民法通则》关于诉讼时效因当事人一方提出要求或起诉而中断的规定，金鹏物业于2016年向国土局发出律师函及向本院提起民事诉讼的行为导致诉讼时效再次中断。所以，金鹏物业于2017年1月5日提起本案诉讼并未超过诉讼时效；第三，国土局应退还金鹏物业土地款300万元及支付相应利息。本案属历史遗留问题，征地行为虽未订立书面合同或协议，但金鹏物业的付款行为应是根据国土局的授意，征地及付款的目的明确。金鹏物业在1992年、1993年期间先后取得原琼山县建设委员会、计划委员会同意在涉案土地上建设项目的通知，并于1993年向原琼山县国土局缴纳土地款300万元，后原琼山市并入海口市，原琼山市国土局的职能由国土局行使。由于历史原因，现国土局无法向金鹏物业实际交付土地，其收取金鹏物业的土地款300万元应予以退还并支付相应的同期银行存款利息。综上所述，金鹏物业的诉讼请求符合法律规定，应予支持。国土局的辩解理由无事实和法律依据，应予驳回。根据《中华人民共和国民法通则》第一百三十五条、一百三十七条、第一百四十条、《最高人民法院关于民事案件适用诉讼时效制度若干问题的规定》第十五条、《中华人民共和国行政诉讼法》第七十八条第一款、《最高人民法院关于适用<中华人民共和国行政诉讼法>若干问题的解释》第十二条的规定，判决如下：限国土局于本判决生效之日起30日内返还金鹏物业本金300万元及相应利息（利息计算方式：以本金300万元为基数，按照同期银行存款利率计算，自1993年2月13日起至清偿日止）。本案诉讼费人民币72772元，由被告海口国土局负担。
上诉人国土局不服上述判决，上诉请求撤销一审判决。事实与理由：一、金鹏物业提起本案诉讼超过法定诉讼期限，（2017）琼0105行初12号判决书认定事实不清，适用法律法规错误，依法应予以撤销。首先，（2017）琼0105行初12号判决书认定向公安机关报案构成诉讼时效中断，没有事实依据。根据一审法庭查明的事实，2012年金鹏物业向公安机关报案的主要理由为合作方涉嫌诈骗，且报案主张为向案外人追偿投资款，而非向国土局主张退还300万元。金鹏物业未明确向国土局主张退还300万元，不应认定时效中断。其次，（2017）琼0105行初12号判决适用法律法规错误。根据《最高人民法院关于适用<中华人民共和国行政诉讼法>若干问题的解释》：”第十二条公民、法人或者其他组织对行政机关不依法履行、未按照约定履行协议提起诉讼的，参照民事法律规范关于诉讼时效的规定；根据《民法通则》第一百三十五条：”向人民法院请求保护民事权利的诉讼时效期间为二年，法律另有规定的除外。”本案金鹏物业应在2年诉讼期间内提起本案诉讼。截至目前付款已经超过23年，金鹏物业知道协议未履行的事实，其向法院主张国土局返还土地款应在2年诉讼时效期间内提出。因此，金鹏物业提起本案诉讼已经远远超过法定期限。依法应驳回被上诉人的起诉。二、一审判决认定国土局应返还被上诉人土地款300万元及至今的银行存款利息，没有事实和法律依据。首先，金鹏物业提起本案诉讼不符合法定条件，超过法定诉讼期限，依法应驳回其起诉。其次，金鹏物业要求返还1993年2月至今的土地预付款存款利息没有依据。第一、本案中金鹏物业与原琼山国土部门之间的土地出让行政协议未成立，也没有产生法律效力。其与原琼山国土部门没有针对国有土地使用权的征收、出让签订过任何协议，对土地出让面积以及时间等协议主要权利义务未形成一致意见，行政协议并未成立。且金鹏物业对致使行政协议未成立负有责任，无权要求上诉人返还土地预付款的利息。综上所述，金鹏物业提起本诉讼不符合法定条件，且其主张没有事实和法律依据，依法应驳回其起诉。
被上诉人金鹏物业辩称：一、金鹏物业提起行政诉讼未超过诉讼时效期间。《最高人民法院关于适用<中华人民共和国行政诉讼法>若干问题的解释》[法释（2015）9号]第十二条规定，本案的时效，应当依法参照民事法律规范关于诉讼时效的规定。根据《民法通则》规定，诉讼时效期间从知道或者应当知道权利被侵害之日起起算，一般期限为2年，最长期限为20年的。有特殊情况的，人民法院可以延长诉讼时效期间。金鹏物业付款时间虽然为1993年，但其知道权利被侵犯的时间是2012年，国土局主张从付款时间起计算时效缺乏依据。根据《民法通则意见》第169条”权利人存在客观的障碍致使法定诉讼时效期间不能行使请求权，属于民法通则第一百三十七条规定的”特殊情况”。《最高人民法院关于民事案件适用诉讼时效制度若干问题的规定》第十五条规定，权利人向公安机关、人民检察院、人民法院报案或者控告，请求保护其民事权利的，诉讼时效从其报案或者控告之日起中断。上述机关决定不立案、撤销案件、不起诉的、诉讼时效期间从权利人知道或者应当知道不立案、撤销案件或者不起诉之日起重新计算；刑事案件进入审理阶段，诉讼时效期间从刑事裁判文书生效之日起重新计算。原告之所以未能向被告主张权利，是因为原告的法定代表人文艺因监禁而没法行使权利去及时追回300万元土地款。直到2012年5月原告的法定代表人文艺（当时在湖北省荆州监狱服刑）确切得知涉案的土地使用权被登记到案外人名下后，委托其亲属文佑树于2012年5月10日向石首市公安局经济犯罪侦查大队报案，报案称案外人系列诈骗，同时主张向海口市国土局支付的款项，充分说明金鹏物业请求公安机关保护其权利，包括支付给国土局的300万元的权利。2012年7月5日石首市公安局通知文佑树该案将被移送至海口市公安局经侦支队。2013年4月25日海口市公安局经侦支队又将该案退回石首市公安局经侦大队。至今该案仍在侦查阶段，该案的进展同被告具有一定的利害关系，根据以上法律的规定及事实，本案的诉求未过诉讼时效。
二、原琼山市国土局违约在先，应当承担缔约过失责任。1993年琼山县建设委员会给原告颁发的《建设用地规划许可证》《建筑许可证》及琼山县计划委员会的批复文件都是向原告作出，金鹏物业也向原琼山市国土局支付了300万土地款。从金鹏物业提供的以上证据中体现双方曾对涉案国有土地出让进行过磋商。但最终原琼山市国土局违背诚信，将涉案土地使用权出让给了案外人，属于《合同法》第四十二条规定，有其他违背诚实信用原则的行为。依据《城镇国有土地使用权出让和转让暂行条例》第十五条规定，出让方应当按照合同规定，提供出让的土地使用权。未按合同规定提供土地使用权的，土地使用者有权解除合同，并可请求违约赔偿。《民法通则》第一百一十一条规定，当事人一方不履行合同义务或者履行合同义务不符合约定条件的，另一方有权要求履行或者采取补救措施，并有权要求赔偿损失。《合同法》第一百零七条规定，当事人一方不履行合同义务或者履行合同义务不符合约定的，应当承担继续履行、采取补救措施或者赔偿损失等违约责任。其应当承担损害赔偿责任，返还给原告300万元及相应的利息。
三、金鹏物业主张国土局应当向其返还土地款300万元及利息于法有据。原琼山市国土局违约占有300万元土地款，致使金鹏物业不能利用该资金进行其他经济活动，从而取得经济收益。依据《合同法》第一百一十三条第一款，《最高人民法院关于审理建设工程施工合同纠纷案件适用法律问题的解释》(法释[2004]14号)第十七条，《最高人民法院关于审理商品房买卖合同纠纷案件适用法律若干问题的解释》(法释[2003]7号)第十七条、第十八条第二款规定，《中国人民银行关于人民币贷款利率有关问题的通知》(银发[2003]251号)规定。不仅应当返还占有的300万元土地款，更应当承担本应属于原告的300万元的法定孳息。综上所述，请根据事实和法律，依法驳回上诉人的上诉，维持原判。
上诉人国土局提起上诉后，原审法院已将原审判决所列证据随卷移送本院。二审期间，上诉人国土局及被上诉人金鹏物业均未提交新证据。
本院认为：根据本案现有证据，无法查清上诉人国土局与被上诉人金鹏物是否存在涉案土地的相关行政协议。被上诉人金鹏物业与案外人金龙公司签订的《联营转让合同书》，双方约定金龙公司向金鹏物业转让位于××县土地。金龙公司负责办理国土批文、土地转让等手续，金鹏物业向金龙公司支付土地款并办理规划、报建等手续。从本案查明的事实来看，1993年2月12日，金鹏物业通过建设银行向琼山县国土局汇款征地款人民币300万元，同年2月13日，琼山县国土局向金鹏物业开具收到预付地价款300万元的收据。后原琼山市并入海口市，原琼山市国土局的职能由上诉人国土局行使。虽然上诉人国土局承认收到金鹏物业300万元土地款，但该笔土地款所出让的土地范围以及该笔土地款是被上诉人金鹏物业自行缴纳还是其代金龙公司缴纳。对于金鹏物业与金龙公司是否有直接明确约定，双方由谁与国土部门就国有土地使用权的出让签订行政协议，而后由谁缴纳、如何缴纳土地款，原审并未查清。据此，本案原审认定事实不清，宜发回重审，由原审法院在重审时进一步查明相关事实。
综上所述，原审判决认定基本事实不清，应发回原审法院重审。依照《中华人民共和国行政诉讼法》第八十九条第一款第（三）项的规定，裁定如下：
一、撤销海口市秀英区人民法院（2017）琼0105行初12号行政判决；
二、发回海口市秀英区人民法院重审。
上诉人海口市国土资源局已预交的二审案件受理费72772元，予以退还。
审判长黄勇
审判员温方
审判员吴茜
书记员冯路
附：本判决适用的相关法律依据
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第十三条民事诉讼应当遵循诚实信用原则。[ly]
当事人有权在法律规定的范围内处分自己的民事权利和诉讼权利。[ly]\'},{法条名称:\'第五十条\',法条内容:\' 第五十条
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第一百四十五条宣判前，原告申请撤诉的，是否准许，由人民法院裁定。[ly]
人民法院裁定不准许撤诉的，原告经传票传唤，无正当理由拒不到庭的，可以缺席判决。[ly]\'}]}]};if
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