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Jiangsu Ruida Ocean Food Co., Ltd. v. the People's Government of Dafeng District, Yancheng City etc. (case of dispute over administrative licensing of the right to use sea areas)
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江苏瑞达海洋食品有限公司诉盐城市大丰区人民政府等海域使用权行政许可纠纷案
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Jiangsu Ruida Ocean Food Co., Ltd. v. the People's Government of Dafeng District, Yancheng City etc. (case of dispute over administrative licensing of the right to use sea areas)
江苏瑞达海洋食品有限公司诉盐城市大丰区人民政府等海域使用权行政许可纠纷案
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| Jiangsu Ruida Ocean Food Co., Ltd. v. the People's Government of Dafeng District, Yancheng City, etc. (case of dispute over administrative licensing of the right to use sea areas) | | 江苏瑞达海洋食品有限公司诉盐城市大丰区人民政府等海域使用权行政许可纠纷案 |
| [Summary of Judgment] | | [裁判摘要] |
| The holder of the right to use sea areas has the right to apply for extending the term of use before its expiration. But where a government and the holder of the right agreed in an administrative agreement that the term will not be extended after expiration, such stipulation does not violate the compulsory provisions of China's laws and regulations, and shall be deemed to be effective. | | 海域使用权人在海域使用期限届满前有权申请续期，但政府与海域使用权人以行政协议方式约定到期后不再续期的，该约定不违反我国法律法规的强制性规定，应认定有效。 |
| Plaintiff: Jiangsu Ruida Ocean Food Co., Ltd. Domicile: on the north side of Weisi Road, the Comprehensive Marine Economic Development Zone, Dafeng District, Yancheng City, Jiangsu Province. | | 原告：江苏瑞达海洋食品有限公司，住所地：江苏省盐城市大丰区海洋经济综合开发区纬四路北。 |
| Legal representative: Xu Hong, Executive Director of the company. | | 法定代表人：徐洪，该公司执行董事。 |
| Defendant: The People's Government of Dafeng District, Yancheng City. Domicile: No. 1, Da Hua Dong Road, Dafeng District, Yancheng City, Jiangsu Province. | | 被告：盐城市大丰区人民政府，住所地：江苏省盐城市大丰区大华东路1号。 |
| Legal representative: Song Yong, District Chief. | | 法定代表人：宋勇，该区区长。 |
| Defendant: The Natural Resource and Planning Bureau of Dafeng District, Yancheng City. Domicile: Xingfuxi Street, Dafeng District, Yancheng City, Jiangsu Province. | | 被告：盐城市大丰区自然资源和规划局，住所地：江苏省盐城市大丰区幸福西大街。 |
| Legal representative: Shang Mingxing, Director of the bureau | | 法定代表人：商明星，该局局长。 |
| The plaintiff, Jiangsu Ruida Ocean Food Co., Ltd.(hereinafter referred to as “Jiangsu Ruida”), filed a lawsuit with the Shanghai Admiralty Court for its dispute over administrative licensing of the right to use sea areas with the defendants, the People's Government of Dafeng District, Yancheng City(hereinafter referred to as the “Dafeng District Government”) and the Natural Resource and Planning Bureau of Dafeng District, Yancheng City(hereafter referred to as the “Natural Resource Bureau of Dafeng District”). | | 原告江苏瑞达海洋食品有限公司因与被告盐城市大丰区人民政府(以下简称大丰区政府)、被告盐城市大丰区自然资源和规划局(以下简称大丰区自然资源局)发生海域使用权行政许可纠纷，向上海海事法院提起诉讼。 |
| BASIC FACTS | | |
| Plaintiff Jiangsu Ruida said: In August 2015, it entered several contracts with the defendant, the Natural Resource Bureau of Dafeng District, for the transfer of the use right of the Dongsha sea areas for laver culture, the contracts' term was three years. In early 2018, the plaintiff applied to the Dafeng District Government for extending the term of the use right. In May of the same year, the Natural Resource Bureau of Dafeng District made the “Reply on Not Supporting Extending the Term of Right to Use Sea Areas”, which informed the plaintiff that its report of application for extending the term had been received, and stated that the contracts of the right had expressively provided that the term of use should not be extended after expiration. Later, the Natural Resource Bureau of Dafeng District issued the “Notice of Rectifying Laver Culture in Dongsha Sea Areas”, asking the laver producers whose term of using the sea areas had expired to stop laver culturing immediately, and to remove all artificial facilities and equipment. The plaintiff claimed that its application for term extension made to the Dafeng District Government who originally approved the right of use shall be replied by the Government. But the District Government hadn't made the decision on whether to approve the term extension before the expiration of the valid period of the original administrative license. Thereby, it should be deemed that the term extension had been approved. It is provided by Article 26 of the Law of the People's Republic of China on the Administration of Sea Areas (hereinafter referred to as the “Law on the Administration of Sea Areas”) that a holder of the right to use sea areas has the right to apply for extending the term of his right before its expiration, the People's Government which originally approved the right shall approve the term extension, except the right to use sea areas shall be withdrawn for the need of public interest or national security. In conclusion, the plaintiff pleaded the Court to rule: 1. to cancel the “Reply on Not Supporting Extending the Term of Right to Use Sea Areas” issued by the Natural Resource Bureau of Dafeng District; 2. the Natural Resource Bureau and the government of Dafeng District shall perform their legal duty of approving the extension of the plaintiff's term of right to use the sea areas. | | 原告江苏瑞达海洋食品有限公司诉称：2015年8月，原告通过投标与被告大丰区自然资源局签订东沙紫菜养殖海域使用权出让合同，期限为三年。2018年初，原告向被告大丰区政府提出海域使用权续期申请，同年5月，大丰区自然资源局作出“关于海域使用权不予续期的答复”，写明原告申请海域使用权续期的报告已收悉，答复称海域使用权合同明确约定，海域使用权到期后不续期。此后，大丰区自然资源局向原告发出“关于清理东沙紫菜养殖的通知”，要求海域使用权期满的业主立即停止紫菜养殖行为，拆除全部人工设施设备等。原告认为，其向原批准用海单位大丰区政府提出续期申请，应由大丰区政府给予答复，大丰区政府并未在原行政许可有效期届满前作出是否准予延续的决定，应视为准予延续。根据《中华人民共和国海域使用管理法》(以下简称《海域使用管理法》)第二十六条的规定，海域使用权人到期前有权申请续期，除根据公共利益或者国家安全需要收回海域使用权的外，原批准用海的人民政府应当批准续期。综上，请求判决：1．撤销大丰区自然资源局向原告发出的“关于海域使用权不予续期的答复”；2．大丰区自然资源局和大丰区政府履行法定职责，对原告海域使用权依法予以续期。 |
| The defendants, the Dafeng District Government and the Natural Resource Bureau of Dafeng District said: Both the contracts of transferring the right to use the sea areas and the related Certificates of Right to Use Sea Areas involved in this case expressively provided that the term of use should not be extended after expiration. Additionally, a term extension application shall not apply to the right of using sea areas acquired through competitive bidding. Part of the Dongsha sea areas overlapped or adjoined the Jiangsu Yancheng Wetland National Nature Reserve (hereinafter referred to as the “National Nature Reserve”). Laver culture in this part of Dongsha sea areas violated the related regulation of the National Nature Reserve, and culturing activities within the Reserve's experimental area needed to be approved by its administration, while applications made by the government agencies of Dafeng District to the administration of the National Nature Reserve had been refused. Part of the Dongsha culturing areas is located within the ecological redline areas. The Protective Management of Ecological Redline required that a limited approving system shall be implemented for the redline areas to strictly control the development intensity and to strengthen the ecological protection and restoration. During the year of 2018, the Yancheng Yellow Sea Wetlands was making efforts to apply for recognition as a world natural heritage. Dongsha sea areas for culturing activities overlapped or adjoined the nominated site of the Wetlands under application, laver culture in Dongsha was to the disadvantage of protecting the natural heritage areas. The Chinese Central Government is implementing stricter supervision measures at present, and the problems existing with the sea farming in Dongsha of Dafeng District have been specifically pointed out in the supervision process. The Yancheng Yellow Sea Wetlands as the nominated areas of world natural heritage, is also a habitat of the red-crowned crane and other migrant birds. It was the major current trend and for the need of protecting social public interest in the long term that the nearby sea areas of the Yancheng Yellow Sea Wetlands needed to be returned from fishing and mariculture to wetlands, and its marine ecology needed to be restored. In conclusion, the defendants pleaded the Court to reject the claim of Plaintiff Jiangsu Ruida. | | 被告大丰区人民政府、大丰区自然资源辩称：涉案的海域使用权出让合同和海域使用权证书上均写明了到期后不再续期，申请续期不应适用于通过招投标取得的海域使用权。东沙紫菜养殖海域部分与盐城湿地珍禽国家级自然保护区范围重合或邻近，在此海域养殖紫菜违反自然保护区管理的相关法规，且在保护区的实验区内养殖还必须取得保护区管理部门的批准，大丰区政府部门曾向保护区管理部门提出申请，但未获得批准。东沙养殖海域部分在生态红线范围内，根据生态红线保护规划，对于红线区实行限批制度，严格控制开发强度，加强生态保护与修复。2018年期间，盐城市黄海湿地申报世界自然遗产工作正在进行当中，东沙养殖海域与黄海湿地申遗的提名地重合或邻近，在该海域继续进行紫菜养殖不利于对遗产地的保护。当前中央政府对海洋采取更为严格的督察措施，并在督察过程中具体指出了大丰东沙海域养殖中存在的问题。盐城黄海湿地作为丹顶鹤等候鸟的栖息地，也是世界遗产提名地，对其附近海域退渔还湿，恢复海洋生态，是当前的大趋势，也是保护社会公共长远利益的需要。综上，请求驳回原告江苏瑞达海洋食品有限公司的诉讼请求。 |
| In the trial at first instance, the Shanghai Admiralty Court found: | | 上海海事法院一审查明： |
In August 2015, the Plaintiff Jiangsu Ruida, participated in the competitive bidding organized by the defendant, the Natural Resource Bureau of Dafeng District, for the right to use sea areas. After winning the bidding, Jiangsu Ruida entered 3 contracts of the first round with the Natural Resource Bureau of Dafeng District for the transfer of the right to use Dongsha laver culturing sea areas. These contracts were respectively corresponding to the third, fourth and fifth bidding sections. The transferred sea areas located at the radiate sand ridges of Dongsha, their designated use was for laver culture, and the sizes of these sea areas provided in the contracts were 145.099, 97.668 and 142.991 hectares respectively. The time limits of the use right stipulated in these contracts were from August 20th, 2015 to June 30th, 2018. Article 10 of all these contracts was the same, which expressively provided as the following, “the right to use the sea area shall terminate upon the expiration of this contract. The term of the use right shall not be approved to be extended”. After entering these contracts, the plaintiff acquired three corresponding Certificates of Right to Use Sea Areas, which expressively stated that the registration authority of the certificates was the Natural Resource Bureau of Dafeng District, and the certificate-issuing authority was Defendant the Dafeng District Government. The termination date of these certificates was expressively stated to be June 30th, 2018. There was also such a statement in each certificate, “the term of the sea area subject to bidding shall not be extended upon expiration”.
．．．．．． | | 2015年8月，原告江苏瑞达海洋食品有限公司参与被告大丰区自然资源局组织的海域使用权出让招投标，并通过投标与大丰区自然资源局签订三份2015年东沙紫菜养殖海域使用权第一轮出让合同，上述合同分别对应三、四、五标段，出让海域均位于东沙辐射沙洲，海域规定用途为紫菜养殖，合同确定的海域面积分别为145.099公顷、97.668公顷、142.991公顷。上述合同约定的海域使用权期限均为自2015年8月20日至2018年6月30日。上述合同第十条均写明：“合同期满，海域使用权终止，本海域使用权不予续期”。此后，原告取得对应的三份海域使用权证书，证书写明的登记机关为大丰区自然资源局，发证机关为被告大丰区政府。证书载明的终止日期为2018年6月30日，并写明“招标海域到期后不再续期”。
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