海南省海口市中级人民法院
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（2017）琼01民终3453号
上诉人（原审原告）：海南省扶贫工业开发区总公司，住所地：海口市南联路新村124号。
法定代表人：郑伟平，总经理。
委托诉讼代理人：胡宗丽，海南天泽律师事务所律师。
委托诉讼代理人：贺飞飞，海南天泽律师事务所律师。
被上诉人（原审被告）：苏崇富，男，1962年10月15日出生，汉族，住海口市。
委托诉讼代理人：王法良，北京大成（海口）律师事务所律师。
委托诉讼代理人：劳世全，海南阳光岛律师事务所律师。
上诉人海南省扶贫工业开发区总公司（以下简称扶贫公司）因与被上诉人苏崇富建设用地使用权转让合同纠纷，不服海口市秀英区人民法院作出的（2017）琼0105民初1350号民事判决，向本院提起上诉。本院于2017年10月9日立案受理后，依法组成合议庭，于2017年11月8日公开开庭进行了审理。上诉人扶贫公司的委托诉讼代理人贺飞飞、被上诉人苏崇富的委托诉讼代理人王法良、劳世全到庭参加诉讼。本案现已审理终结。
扶贫公司上诉请求：一、依法判决撤销海口市秀英区人民法院作出的（2017）琼0105民初1350号民事判决书；二、依法改判支持上诉人原审提出的全部诉讼请求；三、依法改判本案全部诉讼费用由被上诉人承担。事实与理由：原审法院将涉案合同认定为有效合同是完全错误的，该认定没有法律依据且适用法律错误；其故意混淆合同无效和合同未生效的法律概念，将合同无效的法律规定用作判决驳回合同未生效诉请的法律依据，对该错误判决，依法予以撤销。因上诉人系国有企业，掌控的是国有资产，未经审批对名下土地无处分权，鉴于这一情况，根据相关法律法规，上诉人在原审起诉时的诉讼请求为确认涉案合同为未生效合同，是符合法律规定的，是正确的。除本案的诉讼证据，围绕上诉人诉讼请求，上诉人提出了充足的法律依据。其中包括：《合同法》第四十四条，《最高人民法院关于适用<中华人民共和国合同法>若干问题的解释（一）》第九条；提出的行政法规为2003年5月27日国务院发布的《企业国有资产监督管理暂行条例》第六条、第三十三条；相关规定为《企业国有产权转让管理暂行办法》第四条、第八条、第十一条第二款及第二十六条，以及《海南省国有企业国有产权转让管理若干规定》第五条等。以上法律法规及相关规定紧密衔接，构成认定合同未生效的强有力的法律依据。原审法院却以上诉人未提出法律依据为由，强行套用合同无效的相关法规，用来论证涉案合同是否违反效力性强制规定而未生效，其中逻辑十分混乱。原审法院的错误判决，不仅取代了行政机关的行政审批权，取消了国资委对国有资产的监管权，且将造成巨额国有资产流失。请求贵院依法撤销该错误判决，支持上诉人的上诉请求。
苏崇富辩称：一、上诉人主张合同未生效的主要法律依据为《企业国有产权转让管理暂行办法》及《海南省国有企业国有产权转让管理若干规定》的相关规定。答辩人认为这个《暂行办法》及《若干规定》不能成为支持上诉人上诉请求的依据。理由如下：1.答辩人认为该《暂行办法》是2004年2月1日起施行，《若干规定》是2004年7月1日起施行。但是答辩人与上诉人签订合同的时间是在2003年签订，显然这个《暂行办法》及《若干规定》不能适用于答辩人。2.这个《暂行办法》是部门规章，《若干规定》是地方政府规章，它们不是行政法规。所以，依据《中华人民共和国合同法》若干问题的解释（一）第九条规定，同样也不能成为支持上诉人上诉请求的法律依据。3.这个《暂行办法》及《企业国有资产监督管理暂行条例》及《海南省国有企业国有产权转让管理若干规定》均没有明确规定应当办理批准、登记手续才生效的内容。仅仅是规定了内部的管理性规定，而非效力性强制性规定。所以，也不能成为支持上诉人上诉请求的法律依据。4.2003年时，海南省扶贫工业开发区总公司是一个独立的招商扶贫机构，不是国有企业，不属于国资委管辖，所以《暂行办法》、《若干规定》、《企业国有资产监督管理暂行条例》，均不能适用于上诉人。二、答辩人认为上诉人与答辩人于二00三年十二月二十八日签订的《土地经营使用权协议书》是已经发生法律效力的协议书。理由如下：1.依据双方签订的《土地经营使用权协议书》第十五条约定：”本协议书经双方法定代表人签订盖章后生效。”本协议书已经双方签字盖章，合同形式符合双方约定。同时合同内容也没有违反法律、行政法规的强制性规定。根据《合同法》第四十四条第一款规定：”依法成立的合同，自成立时生效。”依据本案的事实，应认定协议书是已经成立并且已经发生法律效力的协议书。所以请求法庭给予确认。2.该协议书双方没有约定附生效的条件。所以，应认定自合同成立时即生效。3.该协议书内容不属于法律、行政法规规定应当办理批准手续或者登记手续才生效的合同。同样应认定自合同成立时即生效。4.该协议书双方签订后，双方已履行完主要义务。上诉人已向答辩人交付土地。答辩人已向上诉人支付完转让土地款项。并且合同履行了十多年来上诉人及相关部门从来没有异议。可认定合同出自双方的真实意思表示。在没有特殊约定和法律、行政法规有特殊规定的情况下，合同自成立时即生效。三、答辩人取得土地后，基于答辩人通过上诉人向国家税务部门缴纳土地使用税的事实，可证明上诉人对答辩人使用的土地是无异议的。现上诉人第二项原审诉讼请求答辩人返还土地无事实依据，同时也无法律依据。请求法庭不予支持。四、上诉人第三项原审诉讼请求答辩人拆除房屋，因无事实依据和法律依据，同样请求法庭不予支持。五、一审法院认定本案事实清楚，适用法律正确，上诉人的上诉理由不成立，请求二审法院驳回上诉人的上诉，维持原审判决。
扶贫公司向一审法院起诉请求：1.请求确认原、被告签订的《土地经营使用权协议》为未生效合同；2.判令被告向原告退还其所占用的原告名下土地；3.判令被告拆除其在原告土地上所建的违法建筑；4.由被告承担本案的全部诉讼费用。
一审法院确认的事实：扶贫公司系全民所有制企业，于1991年成立。1993年，海口市土地管理局与扶贫公司签订《海口市国有土地使用权出让合同》，海口市土地管理局作为出让方，扶贫公司作为受让方，将包括涉案8.363亩土地在内的680亩土地出让给扶贫公司。合同项下的出让地块，按照批准的总体规划是建设工业、综合开发项目。2003年6月15日，扶贫公司与苏崇富签订《土地经营使用权协议书》，约定：扶贫公司将位于海口市××区，用地面积8.363亩土地转让给苏崇富，苏崇富向扶贫公司支付土地使用权转让地价款，包括土地开发费（含开发区”五通一平”费用）和土地使用权出让金共计144.6125万元；苏崇富必须协助扶贫公司办理土地使用权过户手续，办理的各项税费均由苏崇富承担，付清全部土地经营使用权地价款后，该地块的权益全部归属苏崇富所有。上述合同签订后，苏崇富向扶贫公司支付了全部土地转让款144.6125万元，但扶贫公司一直未能将涉案的8.363亩土地过户登记到苏崇富名下。2013年8月8日，扶贫公司与苏崇富签订《土地转让补充协议》约定：扶贫公司于2003年6月15日将位于海口市白水塘北侧省扶贫工业开发区内的土地使用权，其土地用途工业用地，面积5575平方米，东至徐小明，南至项胜斌，西至规划路，北至富康路，转让给苏崇富开发经营使用，苏崇富负责缴纳自双方签订转让土地合同之日起至往后的土地使用税费等。涉案的8.363亩土地自转让合同签订后一直由苏崇富开办的海口富顺达家具有限公司使用，由苏崇富负责缴纳自双方签订转让土地合同之日起至往后的土地使用税费等，苏崇富在涉案土地上建设有厂房和仓库。
一审法院认为，本案的争议焦点是扶贫公司与苏崇富签订的《土地转让协议》的效力问题。现扶贫公司主张双方签订的《土地转让协议》未生效，主要有以下理由：第一，该《土地转让协议》属于国有企业对国有资产的重大处置行为，需经国资管理部门审批，依法履行招、拍、挂程序，且违反《最高人民法院关于适用＜中华人民共和国合同法＞若干问题的解释（一）》第九条规定”依照合同法四十四条第二款的规定，法律、行政法规规定合同应当办理批准手续，或者办理批准登记手续才生效，在一审法庭辩论终结前当事人仍未办理批准手续的，或者仍未办理批准、登记手续的，人民法院应当认定该合同未生效；......”的规定，应属未生效。根据上述司法解释的规定，当事人签订的合同应当办理批准、登记手续，未办理批准、登记手续则合同未生效的前提是有法律、行政法规的明确规定，否则，不能以未办理批准、登记手续作为合同未生效或无效的条件。《国有资产评估管理办法》、《企业国有资产监督管理暂行条例》中关于国有资产转让应当进行评估、批准等程序的规定，均属规范内部程序的管理规定，而非效力性强制性规定，不应影响国有企业与第三人签订合同的效力。本案中，原、被告之间的土地转让是国有企业经营权的体现,原告参与市场交易与其他市场主体地位平等。原告作为资产的管理者，有责任对资产保值增值，但亦应承担市场经营风险。故扶贫公司与苏崇富签订协议后，未向有关部门办理审批手续，并未违反法律、行政法规的强制性规定。第二、原告提出被告是自然人，不具备房地产开发资质，无权成为受让方的问题。根据《中华人民共和国城镇国有土地使用权出让和转让暂行条例》第三条”中华人民共和国境内外的公司、企业、其他组织和个人，除法律另有规定者外，均可依照本条例的规定取得土地使用权，进行土地开发、利用、经营”的规定，被告作为受让方不违反上述条例的规定。本案中涉案土地的用途为工业用地，苏崇富在受让后在土地上加盖了厂房和仓库进行开发利用，没有改变了受让土地的用途，且双方签订协议的目的是为充分利用、合理开发土地资源、盘活国有资产，且合同履行十多年之久。因此，扶贫公司提出的该理由不能成立，一审法院不予支持。综上，涉案《土地转让协议》为双方真实意思表示，不存在《中华人民共和国合同法》第五十二条规定的情形，应为合法有效。双方应本着诚实信用原则严格履行各自的合同义务，故扶贫公司请求确认其与苏崇富签订的《土地转让协议》未生效，但未能提供相关的证据证明上述合同违反了法律、行政法规的效力性强制性规定，也未能提供证据证明上述合同的转让必须经过政府相关部门的审批以及未经审批则合同未生效。因此，一审法院对扶贫公司要求确认《土地转让协议》未生效的诉讼请求不予支持。扶贫公司基于合同未生效，要求退还土地和拆除地上建筑物的诉讼请求同样没有事实和法律依据，一审法院不予支持。扶贫公司主张的民事行为未生效与一审法院根据案件事实作出的认定不一致，一审法院已告知扶贫公司可以变更诉讼请求，但扶贫公司未变更诉讼请求，故应当驳回扶贫公司的诉讼请求。依照《中华人民共和国合同法》第八条、第五十二条、第六十条第一款、《中华人民共和国民事诉讼法》第六十四条第一款的规定，判决如下：驳回原告海南省扶贫工业开发区总公司的诉讼请求。本案诉讼费300元，由原告海南省扶贫工业开发区总公司承担。
二审期间，双方当事人均没有提交新证据。
本院二审查明的事实与一审查明的一致。
本院认为，本案争议的焦点问题是：双方签订的土地转让合同是否已经生效。合同未生效是指合同已经成立，但是合同中所约定的条件未成就，或者约定的期限还未届至，或者还没有按照有关法律规定办理有关行政审批或登记手续，对订立合同的当事人暂时不产生法律约束力。本案中，双方当事人所签订的合同中约定合同自双方法定代表人签字后生效，并没有规定合同生效的条件或生效的期限，所以不存在合同生效的条件是否成就或合同生效的期限是否届至的问题。而双方争议的关健问题是涉案合同是否必须报经行政机关审批或者登记。根据《中华人民共和国合同法》第四十四条规定：”依法成立的合同，自成立时生效。法律、行政法规规定应当办理批准、登记等手续生效的，依照其规定”。涉案合同并非属于法律、行政法规规定应当办理批准、登记手续的合同。本案双方当事人签订的合同是土地转让合同，国家对土地转让合同并未规定合同订立后还必须报经行政机关批准才能生效。本案中，扶贫公司与海口市土地管理局签订《国有土地使用权出让合同》，取得涉案土地使用权后，将涉案土地使用权转让给苏崇富，扶贫公司所转让的土地属于”出让地”，双方的转让”出让地”的行为属于正常的市场交易行为，只要双方协商一致，合同成立后就生效。另外，根据《中华人民共和国城镇国有土地使用权出让和转让暂行条例》第二十五条规定：”土地使用权和地上建筑物、其他附着物所有权转让，应当依照规定办理过户登记。土地使用权和地上建筑物、其他附着物所有权分割转让的，应当经市、县人民政府土地管理部门和房产管理部门批准，并依照规定办理过户登记”。从上述规定可以看出，土地使用权和地上建筑物、其他附着物的所有权转让只需办理过户登记即可，并没有要经过行政机关批准的规定。但鉴于该条例第二十三条规定：”土地使用权转让时，其地上建筑物、其他附着物所有权随之转让”。因此，当土地使用权要与地上建筑物、其他附着物分割转让时，因为以前土地和房产分属两个部门管理，所以应当经过土地管理部门和房产管理部门批准，否则就不能分割转让。该规定旨在维护房地一体的原则，从严控制土地与地上建筑物分割转让。而根据《中华人民共和国物权法》第十五条规定：”当事人之间订立有关设立、变更、转让和消灭不动产物权的合同，除法律另有规定或者合同另有约定外，自合同成立时生效；未办理物权登记的，不影响合同效力”。因此，本案双方当事人签订的土地转让合同所涉及的土地使用权虽然尚未办理过户手续，物权尚未变更，但不影响合同的效力，双方所签订的土地转让合同依法生效，并具有法律效力。
扶贫公司虽然属于全民所有制企业，但其与其他市场主体地位平等，均应遵守国家制定的法律法规，依法开展经营活动。本案中，扶贫公司将其土地使用权转让给苏崇富10多年，苏崇富也已经在地上建设了厂房等建筑物，合同已经履行多年，只是尚未办理土地过户手续。现扶贫公司却以合同尚未生效为由提起诉讼，要求确认合同未生效，并诉请拆除苏崇富的厂房并返还其土地，显然违反了诚实信用原则，不应得到法律的支持。扶贫公司援引的国务院《企业国有资产监督管理暂行条例》第六条、第三十三条等相关规定，主张其未经国资委审批合同尚未生效。本院认为，上述规定属于管理性规定，并非是认定合同是否生效或者是否有效的效力性强制性规定，扶贫公司不能以管理性规定来否定合同的效力，或者以未经其上级主管部门批准合同未生效达到其毁约的目的。
综上所述，扶贫公司的上诉请求不能成立，应予驳回。一审判决认定事实清楚，适用法律正确，应予维持。依照《中华人民共和国民事诉讼法》第一百七十条第一款第一项之规定，判决如下：
驳回上诉，维持原判。
二审案件受理费300元，由上诉人海南省扶贫工业开发区总公司负担。
本判决为终审判决。
审判长李家林
审判员林梅
审判员刘华琪
书记员杜立
速录员李萍
附相关法律法规条文：
《中华人民共和国民事诉讼法》
第一百七十条第二审人民法院对上诉案件，经过审理，按照下列情形，分别处理：
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