土地问题是农村最核心的问题，它不仅关系着我国农业发展，更是影响现阶段社会稳定的一个重要因素，如果妥善处理好此类案件，对于稳定社会，促进经济发展具有积极作用。笔者就当前审理涉及几个问题进行分析，以便在审判实践中准确把握。

　　一、农村土地承包合同存在的问题及完善

　　土地承包合同作为当事人的合意行为，不论从合同签订、合同内容，还是从合同履行上看，都应当严谨、合法，但在实践中，存在种种问题。一是从合同签订主体看，承包经营权流转主体不合法、不规范，导致双方主体资格混乱。二是从合同签订内容看：1、标的不明确，如土地、果园四至不明；2、承包基数及承包费交款时间掌握不好，发包前未作充分的可行性论证，仅凭少数人粗浅体会或者对市场变化因素估计不足，基数过高影响承包者生产积极性，导致合同履行不能或基数过低引起群众红眼病，影响社会稳定；3、违约条款约定不合法，约定的违约金数额过高或过低，起不到惩罚作用。三是从合同形式看不具体、不完善，农村承包合同一般要求订立书面合同，但由于农村文化水平、法律知识、实践经验有限，相当一部分合同条款不全，权利义务约定不明，有的只是村干部口头说了算，没有书面合同，有的村干部不把合同当回事，随手丢弃，一旦发生纠纷，无据可查。四是发包程序上不规范，根据《农村土地承包法》第十八条规定，“承包方案应当依法经本集体经济组织成员的村民会议2/3以上的成员或者2/3以上村民代表的同意”，但在实践中缺乏有效的监督机制，有些达不到法定人数，有些不召开村委会，还有的不征得村民代表同意，造成群众缠诉上访。五是从合同履行上看，违背诚实信用原则，有的承包人不按期缴纳承包费；有的承包人掠夺性经营，破坏土地种植条件；有的承包人未经发包人同意随意转包，而发包方也以各种理由随意解除合同，随意提高承包费，影响了合同的有效履行。

　　根据上述种种情况，笔者认为，应实行土地承包合同备案审查制度。我国《土地承包法》第二十二条规定，“承包合同自成立之日起生效，承包方自承包合同生效时取得土地承包经营权”，第二十三条规定，“县级以上人民政府应当向承包方颁发土地承包经营权证或者林权证等证书，并登记到册，确认土地承包经营权”。为完善农村土地承包关系，维护发包方和承包方合同的稳定性及双方利益，应由乡（镇）人民政府农村经营管理部门对合同进行审查备案制度，未经该部门审查的，人民政府不予颁发农村土地承包经营权证书。

　　二、民主议定原则对土地承包合同效力的影响

　　《村民委员会组织法》、《土地管理法》、《农村土地承包法》对农村重大承包事项都规定了民主议定原则，其法理基础是土地的所有权必须依照所有权人集体意志行事。近几年，从我院审理的土地承包案件来看，有三成为村民委员会主任一人签订合同，未经民主议定原则。作为土地管理者的发包方违反法律这一强制性规定，人民法院应当认定该承包合同无效。根据最高人民法院《关于审理农业承包合同纠纷案件若干问题的规定》第二条、第二十五条规定，“承包合同签订满一年或虽未满一年，但承包人已实际进行了大量投入的，人民法院不因发包人违反法律规定的民主议定原则越权发包而认定该承包合同无效，但可对合同有关内容适当调整。”该规定适用于发包方所属的半数以上村民以发包方为被告要求确认合同效力而提起的诉讼。该条“一年”的期限为除斥期间，也就是说，只要在承包合同签订后一年内没有提起诉讼，人民法院就不能再以此理由认定为合同无效。该解释规定的“适当调整”也是以合同有效为前提，对无效合同没有必要进行事后调整。

　　三、情势变更原则在土地纠纷案件中的体现

　　《合同法司法解释二》第二十六规定，合同成立以后客观情况发生了当事人在订立合同时无法预见的，非不可抗力造成的部署与商业风险的重大变化，继续履行合同对于一方当事人明显不公平或者不能实现合同目的，当事人请求人民法院变更或者解除合同的，人民法院应当根据公平原则，并结合案件的实际情况确定是否变更或解除。最高人民法院《关于审理涉及土地承包纠纷案件适用法律问题的解释》第十六条规定：“因承包方不收取流转价款或者向对方支付费用的约定产生纠纷，当事人协商变更无法达成一致，且继续履行又显示公平的，人民法院可以根据发生变更的客观情况，按照公平原则处理。”通过上述司法解释可知，情势变更原则是合同法上一项重要的抗辩原则。农村土地承包纠纷案件属于合同法的范畴，在合同履行过程中，因订立期限较长，承包人投入较大，各种客观情况发生可能性极大，如物价增高、通货膨胀等，审理土地纠纷案件适用情势变更原则更能够体现公平正义，更能够稳定农村生产生活秩序，消除当事人之间的利益不平衡性和对抗性，有利于社会和谐。

　　四、关于《土地管理法》第十六条的理解和适用

　　《土地管理法》第十六条规定：“土地所有权和使用权争议，由当事人协商解决；协商不成的，由人民政府处理。单位之间的争议，由县级以上人民政府处理。个人之间、个人与单位之间的争议，由乡级人民政府或者县级以上人民政府处理。当事人对有关人民政府的处理决定不服的，可以自接到处理决定通知之日起三十日内，向人民法院起诉。在土地所有权和使用权争议解决前，任何一方不得改变土地利用现状。”关于土地权属争议，本条规定了三种解决的办法：一是争议发生后先由当事人之间进行协商解决。所谓协商，就是指土地所有者或者使用者权属发生争议后，在自愿互谅的基础上直接进行磋商，自行解决。如果协商不成，或者协商达成协议一方反悔，他方可提请人民政府处理。二是当事人协商不成由人民政府处理，单位之间争议由县级以上人民政府处理，个人之间、个人与单位之间发生争议由乡级人民政府或者县级人民政府处理。人民政府收到争议案件后，一般先进行调解，调解不成进行行政裁决。三是当事人对有关人民政府处理决定不服，可以自接到处理决定通知之日起三十日内向人民法院起诉。

　　此类诉讼到底是民事诉讼还是行政诉讼不能一概而论，应区别情况。《最高人民法院关于贯彻执行中华人民共和国行政诉讼法若干意见（试行）》中受案范围第七条规定，“公民、法人或者其他组织对人民政府或者其主管部门有关土地、矿产、森林等自然资源的所有权或使用权归属的处理决定不服，依法向人民法院起诉的，人民法院应作为行政案件受理。”由此可见，需要由人民政府确认所有权、使用权归属的，属于行政案件，一方对行政裁决不服，向人民法院提出行政诉讼。如果土地权属已明确，侵犯土地所有权和使用权的争议纠纷，应该向人民法院提起民事诉讼。此外，还需要说明的是，《土地管理法》第十六条第三款规定，如果有关当事人的土地所有权或使用权归属需要先由人民政府确定的，人民政府处理是提起民事诉讼的前置程序。没有经过这个前置程序，人民法院不予受理。

　　五、关于对《中华人民共和国农村土地承包经营纠纷调解仲裁法》第十八条和第四十八条的理解和适用

　　《中华人民共和国农村土地承包经营纠纷调解仲裁法》第十八条规定：“农村土地承包经营纠纷申请仲裁的时效期间为二年，自当事人知道或者应当知道其权利被侵害之日起计算。”根据《物权法》的有关精神，农村土地承包合同属于用益物权，该纠纷不适用于诉讼时效，故此时效期间为除斥期间。

　　本法第四十八条规定：“当事人不服仲裁裁决，可以自收到裁决书之日起三十日内向人民法院起诉，逾期不起诉的，裁决书即发生法律效力。”2009年6月27日，全国人大常委会通过了《中华人民共和国农村土地承包经营纠纷调解仲裁法》,该法明确规定，农村土地承包经营纠纷包括：（一）因订立、履行、变更、解除和终止农村土地承包合同发生的纠纷；（二）因农村土地承包经营权转包、出租、互换、转让、入股等流转发生的纠纷；（三）因收回、调整承包地发生的纠纷；（四）因确认农村土地承包经营权发生的纠纷；（五）因侵害农村土地承包经营权发生的纠纷；（六）法律、法规规定的其他农村土地承包经营纠纷。发生农村土地承包经营权的纠纷，当事人可以自行和解，也可以请求村民委员会、乡镇人民政府等调解，当事人和解、调解不成，或者不愿意和解、调解的，可以向农村土地承包仲裁委员会申请仲裁。该法的实施，为农村多元化解决土地矛盾纠纷建立了良好的机制。农村土地承包仲裁委员会面向农村，快速解决纠纷，灵活简便，是农村土地纠纷很好的解决途径，同时也避免大量的土地纠纷案件涌向法院，建议先引导矛盾双方当事进行仲裁，对仲裁不服可向人民法院提起诉讼，此类诉讼应为民事诉讼。

　　（作者单位：河北省广宗县人民法院）
江西省人民政府


江西省行政机关实施行政许可听证办法（附：英文译本）

文号：江西省人民政府令第156号
《江西省行政机关实施行政许可听证办法》已经2007年4月23日省人民政府第58次常务会议审议通过，现予公布，自2007年7月1日起施行。
　　
　　 省长吴新雄
　　
　　 二○○七年四月二十九日

　　
　 　江西省行政机关实施行政许可听证办法
　　
　　
　　第一条 为规范行政机关实施行政许可的听证活动，保护公民、法人和其他组织的合法权益，维护公共利益和社会秩序，保障和监督行政机关有效实施行政许可，根据《中华人民共和国行政许可法》，结合本省实际，制定本办法。
　　
　　第二条 本省行政区域内各级行政机关实施行政许可听证（以下简称听证），适用本办法。
　　
　　法律、法规授权实施行政许可的具有管理公共事务职能的组织，适用本办法有关行政机关的规定。
　　
　　第三条 行政机关实施下列行政许可事项，应当组织听证：
　　
　　（一）法律、法规、规章规定实施行政许可应当听证的事项；
　　
　　（二）行政机关认为需要听证的涉及公共利益的重大行政许可事项；
　　
　　（三）被依法告知听证权利的行政许可申请人、利害关系人在法定期限内提出听证申请的事项。
　　
　　第四条 听证应当遵循合法、公开、公平、公正、高效和便民的原则。
　　
　　除涉及国家秘密、商业秘密或者个人隐私的外，听证会一律公开举行，并允许公民、法人和其他组织旁听，接受社会监督。
　　
　　第五条 听证由有权作出行政许可决定的行政机关组织；依法接受委托实施行政许可的行政机关应当以委托行政机关的名义组织听证。
　　
　　依法应当经两个或者两个以上行政机关分别实施的行政许可事项须听证的，应当分别组织听证，或者联合组织听证。
　　
　　依法应当先经下级行政机关审查后，报上级行政机关决定的行政许可事项须听证的，由最终作出行政许可决定的行政机关组织听证；但该行政许可事项依法应当报国务院或者国务院部门作出行政许可决定的，按国家有关规定执行。
　　
　　第六条 听证人包括：听证主持人、听证员、记录员。
　　
　　听证主持人和听证员由行政机关负责人指定；记录员由听证主持人指定。
　　
　　第七条 听证主持人应当符合下列条件：
　　
　　（一）是审查该行政许可申请的工作人员以外的人员；
　　
　　（二）熟悉听证程序以及与该行政许可事项有关的法律、法规、规章的规定；
　　
　　（三）具有一定的组织能力；
　　
　　（四）法律、法规、规章规定的其他条件。
　　
　　第八条 听证主持人履行下列职责：
　　
　　（一）组织制定听证方案；
　　
　　（二）确定听证会的时间、地点；
　　
　　（三）组织听证会的进行；
　　
　　（四）接收有关证据；
　　
　　（五）维持听证会秩序；
　　
　　（六）组织提出听证报告书；
　　
　　（七）法律、法规、规章和本办法规定的其他职责。
　　
　　听证员负责协助听证主持人履行前款规定的职责。
　　
　　第九条 听证参加人包括：行政机关审查该行政许可申请的工作人员、行政许可申请人、利害关系人，以及本办法第十一条规定的委托代理人、鉴定人、证人。
　　
　　第十条 行政机关对本办法第三条第（一）、（二）项规定的行政许可事项，应当在作出行政许可决定前，以公告的形式向社会告知听证的事项、拟作出行政许可决定的主要内容，以及报名参加听证的办法等，公告的时间不得少于15日。
　　
　　行政机关对本办法第三条第（三）项规定的行政许可事项，应当在作出行政许可决定前，书面告知行政许可申请人、利害关系人享有要求听证的权利；行政许可申请人、利害关系人在被告知听证权利之日起5日内提出听证申请的，行政机关应当在20日内组织听证。
　　
　　第十一条 报名或者申请参加听证会的利害关系人较多时，组织听证的行政机关可以要求利害关系人在规定时间内自行推选代表人参加听证，并提交载明代表人基本情况的书面材料，由听证主持人审核确认；逾期未推选的，由组织听证的行政机关按照报名、申请的顺序或者采取抽签等公平、公开的方式确定代表人作为听证参加人，并予以公布。
　　
　　前款代表人的人数，由组织听证的行政机关根据听证事项的具体情况，按照不同主张的人员人数基本相同的原则确定，并予以公布。
　　
　　代表人参加听证的行为对其所代表的当事人发生效力，但代表人变更或者放弃听证主张的，应当经被代表的当事人同意。
　　
　　第十二条 行政许可申请人、利害关系人可以委托1至2名代理人参加听证；委托代理人参加听证的，应当向组织听证的行政机关提交载明委托事项及权限，并由委托人签名或者盖章的授权委托书，由听证主持人审核确认。委托代理人代为变更或者放弃听证主张，或者代为放弃陈述权、申辩权、质证权的，应当有委托人的明确授权。
　　
　　审查该行政许可申请的工作人员、行政许可申请人、利害关系人认为有关问题需要鉴定，或者有证人证明其听证主张的，可以请鉴定人或者证人参加听证，并向组织听证的行政机关提交有关的证明材料，由听证主持人审核确认。
　　
　　第十三条 听证主持人有下列情形之一的，应当自行回避；行政许可申请人、利害关系人有权以口头或者书面形式申请其回避：
　　
　　（一）是该行政许可申请的审查人员；
　　
　　（二）与该行政许可申请人、利害关系人或者他们的委托代理人是近亲属的；
　　
　　（三）与听证的行政许可事项有直接利害关系的；
　　
　　（四）与该行政许可申请人、利害关系人有其他关系，可能影响听证的公正性的。
　　
　　前款规定，适用于听证员、记录员、鉴定人。
　　
　　听证主持人的回避，由行政机关负责人决定；听证员、记录员、鉴定人的回避，由听证主持人决定。
　　
　　第十四条 组织听证的行政机关应当在听证会举行的7日前，向听证参加人送达《行政许可听证通知书》，必要时予以公告。
　　
　　《行政许可听证通知书》应当载明下列事项：
　　
　　（一）听证的行政许可事项；
　　
　　（二）拟作出行政许可决定的主要内容；
　　
　　（三）举行听证会的时间、地点；
　　
　　（四）听证主持人的姓名、职务；
　　
　　（五）其他应当载明的事项。
　　
　　第十五条 听证会按照下列程序进行：
　　
　　（一）听证主持人宣布听证会开始，介绍听证参加人和听证的行政许可事项，核对行政许可申请人、利害关系人的身份；
　　
　　（二）听证员宣读听证会纪律；
　　
　　（三）审查该行政许可申请的工作人员陈述审查意见及所依据的事实、理由和适用的法律、法规、规章，出示证据；
　　
　　（四）行政许可申请人、利害关系人按照听证主持人安排的顺序，陈述主张及相关事实、理由和法律、法规、规章依据，出示证据；
　　
　　（五）进行申辩和质证，需请鉴定人出示鉴定意见或者证人作证的，须经听证主持人允许；
　　
　　（六）申辩和质证终结，审查该行政许可申请的工作人员、行政许可申请人、利害关系人按照听证主持人安排的顺序，作最后陈述；
　　
　　（七）听证主持人宣布听证会结束。
　　
　　听证主持人应当中立、客观、全面地听取听证参加人的陈述。
　　
　　听证会举行的当日不能完成本条第一款规定程序的，听证主持人应当宣布择期继续举行听证会。
　　
　　第十六条 在听证会进行过程中，听证主持人可以询问听证参加人；经听证主持人允许，审查该行政许可申请的工作人员、行政许可申请人、利害关系人可以相互发问，也可以向鉴定人、证人发问。
　　
　　第十七条 听证应当制作听证笔录。听证笔录应当载明下列内容：
　　
　　（一）听证的行政许可事项；
　　
　　（二）听证主持人、听证员和记录员的姓名、职务；
　　
　　（三）听证参加人的姓名、地址等基本情况和出席听证会的情况；
　　
　　（四）听证会举行的时间、地点；
　　
　　（五）听证会是否公开举行，不公开举行的理由；
　　
　　（六）审查该行政许可申请的工作人员、行政许可申请人、利害关系人的陈述及提出的事实、理由、依据、证据；
　　
　　（七）鉴定人的鉴定结论和证人证言；
　　
　　（八）申辩和质证情况；
　　
　　（九）听证主持人在听证会进行过程中对有关事项的处理情况；
　　
　　（十）听证主持人认为应当记录的其他事项。
　　
　　审查该行政许可申请的工作人员、行政许可申请人、利害关系人在听证时提出的经过质证的证据材料，应当作为听证笔录的附件。
　　
　　第十八条 听证笔录应当由听证参加人签名或者盖章；听证参加人拒绝签名或者盖章的，应当记录在卷。
　　
　　听证参加人认为听证笔录对自己的陈述记录有遗漏或者差错的，有权向听证主持人申请补正；不予补正的，应当将申请记录在卷。
　　
　　第十九条 听证会结束后，听证主持人应当会同听证员、记录员在5日内，根据听证笔录制作听证报告书，连同听证笔录报送本行政机关负责人。
　　
　　行政机关对依法举行了听证会的行政许可事项，应当根据听证笔录作出行政许可决定。
　　
　　第二十条 有下列情形之一的，可以延期举行听证：
　　
　　（一）因不可抗力导致听证会无法按期举行的；
　　
　　（二）行政许可申请人、利害关系人申请延期，有正当理由的；
　　
　　（三）依法可以延期的其他情形。
　　
　　延期举行听证会的，组织听证的行政机关应当通知听证参加人；延期的情形消失后，组织听证的行政机关应当在3日内举行听证会，并书面通知听证参加人。
　　
　　第二十一条 有下列情形之一，可以中止听证：
　　
　　（一）听证会进行过程中提出新的事实、理由和证据，听证主持人认为有待调查核实的；
　　
　　（二）回避申请在听证会开始后提出的；
　　
　　（三）依法可以中止听证的其他情形。
　　
　　中止听证的情形消失后，组织听证的行政机关应当在3日内恢复举行听证，并通知听证参加人。
　　
　　第二十二条 有下列情形之一的，可以终止听证：
　　
　　（一）行政许可申请人、利害关系人撤回申请的；
　　
　　（二）行政许可申请人、利害关系人无正当理由不参加听证会，或者未经听证主持人允许中途退场的；
　　
　　（三）依法应当终止听证程序的其他情形。
　　
　　第二十三条 行政许可申请人、利害关系人对本办法第三条第（三）项规定的行政许可事项，在规定时间内均未提出听证申请的，视为放弃听证要求，行政机关应当作书面记载，并可以在对行政许可申请进行全面、客观、公正审查的基础上，依法作出行政许可决定。
　　
　　第二十四条 行政机关及其工作人员违反《中华人民共和国行政许可法》和本办法的规定，有下列情形之一的，由其上级行政机关或者监察机关责令改正；情节严重的，对直接负责的主管人员和其他直接责任人员依法给予行政处分：
　　
　　（一）未向行政许可申请人、利害关系人履行法定告知听证权利的义务的；
　　
　　（二）依法应当举行听证而未举行听证的；
　　
　　（三）不履行或者不正确履行听证职责的；
　　
　　（四）未依据听证笔录作出行政许可决定的。
　　
　　第二十五条 行政许可申请人、利害关系人或者其他人员扰乱听证会秩序或者有其他妨碍听证会正常进行行为的，听证主持人有权予以制止或者责令其退场；情节严重的，由公安机关依法给予治安管理处罚；构成犯罪的，依法追究刑事责任。
　　
　　第二十六条 行政许可申请人、利害关系人不承担行政机关组织听证的费用。听证所需经费应当列入本行政机关的预算，由本级财政予以保障。
　　
　　第二十七条 本办法规定的期限以工作日计算，不含法定节假日。
　　
　　行政机关组织听证的时间，不计算在实施该行政许可事项的法定期限内；其实施行政许可的期限，自听证程序结束、终止的次日起接续计算。
　　
　　第二十八条 本办法自2007年7月1日起施行。


　　英文译本

Measures of Jiangxi Province for Public Hearings of the Implementation of Administrative License by the Administrative Organ


These Measures of Jiangxi Province for Public Hearings of the Implementation of Administrative License by the Administrative Organ, adopted at the 58th session of the executive meeting of the People’s Government of Jiangxi Province on April 23, 2007, are hereby promulgated and shall come into effect as of July 1, 2007.


Governor: Wu Xinxiong

April 29, 2007


　　Article 1　In order to regulate the hearing procedures of implementation of Administrative License by the Administrative Organ, protect the legal rights and interests of citizens, legal persons and other organizations, safeguard the public interests and social order, and ensure and supervise the effective implementation of administrative license, these measures are formulated in accordance with the specific circumstances of the province and the Administrative License Law of the People's Republic of China.

　　Article 2　These measures shall apply to the public hearing of implementation of Administrative License by the administrative organs at all levels within the administrative areas of the province (hereinafter referred to as “hearing”).

The provisions concerning the administrative organ in these measures shall be applicable to the organization with a function of implementing Administrative License or managing public affairs under the authorization of a law or regulation.

　　Article 3　A hearing should be organized upon implementation of the following administrative license matters by the administrative organs:

　　(1) A hearing as provided for the implementation of administrative license in any law, regulation or rule;

　　(2) Any licensing matters considered by the administrative organ to be of great importance to the public interests;

　　(3) Licensing matters applied within the statutory time limit by the applicants and the interested parties of administrative license who have been informed the legal right to a hearing in accordance with law;

　　Article 4　The hearing shall observe the principles of legality, openness, fairness and impartiality, high efficiency and convenience.

　　The hearing shall be held in public except that it involves state secrets, business secrets and individual privacy. Citizens, legal persons and other organizations shall have the access to observing and supervising the hearing proceedings.

　　Article 5　The hearing should be organized by the administrative organs which are entitled to make administrative license decisions. The administrative organs which are legally entrusted with the implementation of the administrative license should organize the hearing in the name of the entrusting administrative organ.

　　If an administrative licensing matter to be implemented respectively by two or more administrative organs needs hearing, it should be organized separately or jointly.

　　In accordance with law, where an administrative license should be subject to the examination of the lower administrative organ before it is reported and submitted to the upper administrative organ for decision, the hearing should be organized by the administrative organ that makes the final administrative decision. But when an administrative license should be reported to the State Council or the departments under the State Council for administrative license decisions, the relevant state regulations prevail.

　　Article 6　The hearing staff includes the chairperson of the hearing, the hearing officers and the notetaker.

　　The chairperson of the hearings and the hearing officers shall be decided by the director of the administrative organ. The clerk shall be decided by the chairperson of the hearing.

　　Article 7　The chairperson of the hearings should meet the following requirements:

　　(1) Those who are not responsible for the examination of an application for administrative license;

　　(2) Those who are familiar with the hearing procedures of the administrative license and related laws, regulations and rules;

　　(3) Those with a certain organizing ability;

　　(4) Those who meet the other requirements stipulated in the laws, regulations and rules.

　　Article 8　The chairperson of the hearing shall perform the following functions during the hearing:

　　(1) Make the plan of the hearing;

　　(2) Decide the time and place of the hearings;

　　(3) Organize the hearings;

　　(4) Receive relevant evidence;

　　(5) Maintain the proper order of the hearings;

　　(6) Prepare and work out the hearing report;

　　(7) Fulfill other duties as provided in any law, regulation, rule and these measures.

　　The hearing officers shall assist the chairperson of the hearings in performing the functions and duties stipulated above.

　　Article 9　The participants of the hearing include the persons who are responsible for the examination of an application for administrative 　license, the applicants of administrative license, the interested parties，the entrusted agents, the identifiers and the witnesses as provided in Article 12 of these measures.

　　Article 10　For the administrative license matters listed in Items 1and 2 of Article 3，the administrative organ shall announce to the public the information about the matters under administrative license of the hearing， the main content of administrative license decisions and the way to participate in the hearing before making the administrative decision. The duration of the announcement shall not be less than 15 days.

　　For the administrative license matters listed in Item 3 of Article 3，the administrative organ shall inform the applicant of the administrative license or the interested party of the right to request for a hearing by means of written notice. Where the applicant or interested party applies for a hearing within 5 days from the day when he or she is informed of such right, the administrative organ shall organize a hearing within 20 days.

　　Article 11　When there are lots of interested parties applying to participate in the hearing, the administrative organ which organizes the hearing can ask the interested parties to select their own representatives to participate in the hearing in a specified time and submit written materials which contain basic information of the representatives for the chairperson to examine. If no representatives are selected within the time limit, the administrative organ that organizes the hearing should select the representatives according to the application order or by means of drawing straws or in other fair and open ways.

　　The number of representatives should be decided by the administrative organ that organizes the hearing according to the specific circumstances of the hearing and according to the basic principle that the numbers of people with different opinions are equally represented, and the number of the representatives should be announced.

　　The acts of such representatives in the hearing shall be valid for the party they represent; however, modification or waiver of the hearing claims by the representatives shall be subject to the consent of the party they represent.

　　Article 12　The applicants of the administrative license and the interested parties may entrust one or two agents to participate in the hearing. Where the entrusted agents participate in the hearing, a Power of Attorney containing the explicit description of the entrusted matters and the limits of authority and bearing the signature or seal of the entrusting party shall be submitted to the chairperson of the hearing for examining. Modification or waiver of the hearing claims or the disclamation of the rights to make statements, defend and conduct cross-examinations shall be subject to the authorization of the entrusting party.

　　If the persons who are responsible for the examination of an application for administrative license, the applicants and the interested parties consider it is necessary to identify relevant matters，or there are witnesses to prove their hearing claims, identifiers and witnesses could be invited to participate in the hearing. Relevant supporting materials shall be submitted to the administrative organ for the chairperson of the hearing to examine.

　　Article 13　Under any of the following circumstances, a chairperson of the hearing shall voluntarily withdraw from holding a hearing, while the applicants or any interested parties are entitled to require the withdrawal of such a person from the hearing in oral or written form.

　　(1) He or she is one of the examining personnel of the case;

　　(2) He or she is the close relative of an applicant of the administrative license, an interested party, or the entrusted agent of the case;

　　(3) He or she is one of the personnel who have direct interests with the administrative licensing matter;

　　(4) He or she has some other relationship with the applicant or the interested party of the case，which may affect the impartial hearing of the case.

　　The provisions of the preceding paragraph are applicable to the hearing officers, the notetakers, and the identifiers.

　　The withdrawal of the chairperson from the hearing shall be decided by the director of the administrative organ. The withdrawal of the notetaker and the identifiers shall be decided by the chairperson of the hearing.

　　Article 14　The administrative organ shall send the "administrative license hearing notice" to the participants of the hearing 7 days before it is held, and shall announce it to the public if necessary;

"Administrative license hearing notice" should include:

　　(1) The matters under administrative license of the hearing;

　　(2) The main content of administrative license decisions;

　　(3) The time and place of the hearing to be held;

　　(4) The name and title of the chairperson of the hearing;

　　(5) Other matters that should be made clear.

　　Article 15　The public hearing shall be conducted in accordance with the following procedure:

　　(1) The chairperson of the hearing should announce the commencement of the hearing, introduce the participants of the hearing and the Administrative License matters and check the identities of the participants of administrative license and the interested parties.

　　(2) The hearing officer reads the hearing disciplines;

　　(3) The persons who are responsible for the examination of an application for administrative license shall provide proofs, reasons and laws, regulations and rules for the examination opinions and present evidence;

　　(4) The applicants and the interested parties shall make their statements and provide related proofs, reasons and laws, regulations and rules and present evidence with the order arranged by the chairperson of the hearing;

　　(5) Where it is necessary for the identifier to read out the conclusion of verification in the course of defense and cross-examination, or for the witness to testify, the chairperson of the hearing should give permission first;

　　(6) After the defense and cross-examination, the persons who are responsible for the examination of an application for administrative license, the applicants and the interested parties should make their final statements with the order arranged by the chairperson of the hearing;

　　(7) The chairperson of the hearing announces the closure of the hearing.

　　The chairperson of the hearing should be neutral, objective and impartial in hearing the statements of the participants of the hearing.

　　If the procedures mentioned in the first paragraph of this article can’t be completed, the chairperson of the hearing should declare that the hearing will continue later.

　　Article 16　During the hearing, the chairperson of the hearing can question the participants of the hearing; with the permission given by the chairperson of the hearing, the persons who are responsible for the examination of an application for administrative license, the applicants and the parties can question each other and can also question the identifiers or witnesses.

　　Article 17　The activities of hearing shall be recorded in the transcripts of the hearing. The transcripts of the hearing shall explicitly record the following matters：

　　(1) The matters under administrative license of the hearing;

　　(2) The names and titles of the chairperson of the hearing， hearing officers，and the notetaker;

　　(3) The names, addresses and attendance of the participants of hearing;

　　(4) The time and place of the hearing held;

　　(5) Whether the hearing is held openly.If it is not,the reasons should be provided;

　　(6) The statements, facts, reasons, basis and evidence provided by the persons who are responsible for the examination of an application for administrative license, the applicants of the administrative license and the interested parties;

　　(7) The conclusion of verification of the identifier and the testimony of the witness;

　　(8) Defense and cross-examinations;

　　(9) The treatment of related matters by the chairperson of the hearing in the course of the hearing;

　　(10) Any other matters that the chairperson considers to be important.

　　The evidence materials of cross-examinations provided by the persons who are responsible for the examination of an application for administrative license, the applicants and the interested parties during the hearing should be included as the attachment of the transcripts of the hearing.

　　Article 18　The transcripts of the hearing to the participants shall bear the signatures or the seals of the participants of the hearing. Refusal of the participants of the hearing to sign or seal shall be recorded.

　　If the participants of the hearing consider that the transcripts of the hearing has omitted a part of their statement or is incorrect in some other respect, they shall have the right to request correction thereof. If no correction is made, the request for correction shall be noted in the written record.

　　Article 19　After the hearing, the chairperson of the hearing shall make a Report of the Administrative License according to the transcripts of the hearing, and send it together with the transcripts to the director of the administrative organ within 5 days.

　　The administrative organ shall make a decision on the administrative license according to the transcripts of the hearing.

　　Article 20　Under any of the following circumstances, the public hearing shall be postponed:

　　(1)The hearing is unable to be implemented due to force majeure;

　　(2) The applicant of the administrative license or the interested party applies for a phased extension with valid reasons;

　　(3)Other circumstances for the postponement of the hearing.

　　If the hearing is postponed, the administrative organ that organizes the hearing shall inform the participants of the hearing. Where the reason for the postponement of the hearing ceases to exist, the administrative organ that organizes the hearing shall resume the hearing within 3 days and inform the participants of the hearing.

　　Article 21　Under any of the following circumstances, the hearing shall be suspended:

　　(1) There appear new facts, reasons and evidence during the hearing which the chairperson considers should be verified;

　　(2) The requirement of the withdrawal of a hearing officer is made after the hearing has started;

　　(3) Other circumstances for the suspension of the hearing.

　　Where the reason for the suspension of the hearing ceases to exist, the administrative organ that organizes the hearing shall resume the hearing within 3 days and inform the participants of the hearing.

　　Article 22　Under any of the following circumstances, the hearing shall be terminated:

　　(1) The applicant of the administrative license or the interested party has withdrawn the application;

　　(2) The applicant of the administrative license or the interested party fails to be present at the hearing without valid reasons or withdraws from the hearing without the permission of the chairperson of the hearing.

　　(3) Other circumstances for the termination of the hearing

　　Article 23　For the administrative license matters listed in Item 3 of Article 3 of these measures，the applicant of the administrative license or the interested party failing to file the application of hearing within the prescribed period shall be considered to disclaim the hearing right. The administrative organ shall make a written record，and make a decision on the administrative license in accordance with the law upon comprehensive, objective and fair examination.

　　Article 24　Where an administrative organ and any of its functionaries violates any of the provisions of these measures or the Administrative License Law of The People's Republic of China under any of the following circumstances, the order of correction shall be given by the superior administrative organ or the supervisory organ; if the violations are serious, the direct liable persons in charge and other direct liable persons shall be given the administrative punishment in accordance with law:

　　(1) Failing to inform the applicants of the administrative license or the interested parties of the hearing rights and obligations;

　　(2) Failing to hold a hearing as required by the law;

　　(3) Failing to perform its hearing functions or failing to fulfill the hearing obligations in this aspect;

　　(4) Failing to make the administrative license decision on the basis of the transcripts of the hearing.

　　Article 25　If the applicants of the administrative license, the interested parties or any other person disrupt the hearing order or contravenes the proper conduct of the hearing, the chairperson shall be entitled to stop the behavior or order them to leave. If the violation is serious, the public security office shall, according to the relevant provisions of the public order management regulations, impose a penalty. If such actions constitute a crime, criminal penalty shall be imposed.

　　Article 26　The applicants of the administrative license and interested parties shall not pay for the expenses arising from the administrative organ's organization of the hearing. The essential fund for the administrative organ to implement an administrative license shall be listed in the budget of this administrative organ, which shall be ensured by the finance department of the same level.

　　Article 27　he time limit referred to in these measures shall be calculated according to the working days, not including the legal holidays and leaves.

　　Where an administrative organ needs to organize a hearing, the required time shall not be included in the time limit of implementation of the Administrative License. The time limit of implementation of the Administrative License should be calculated from the day after the date of termination of the hearing procedures.

　　Article 28　These measures shall become effective as of July 1, 2007.