所有权保留制度中出卖人取回权的法律性质--就物求偿说之检讨/汪淑华

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所有权保留制度中出卖人取回权的法律性质
--就物求偿说之检讨

武汉大学法学院2001硕士研究生  汪淑华


所有权保留,是指在买卖合同中,双方当事人约定买受人先占有使用标的物,但在双方约定的特定条件成就前,出卖人仍保留标的物所有权,待条件成就后,再将所有权移转给买受人的制度。据学者研究,罗马法上曾有类似制度,德国普通法亦承认该制度,但由于在当时利用甚少,因而不为世人所重视。19世纪末期,随着信用经济的发展,分期付款交易的日益兴盛,所有权保留作为分期付款交易的方式之一,以其特有的制度设计,实现了买受人对标的物的提前利用,并为出卖人实现债权提供了有效便捷的担保,实现利益均衡,保障交易安全的效用。因而,所有权保留制度纷纷为英美法系及大陆法系所普遍采用。适应这一立法趋势和我国市场经济的发展的要求,1999年制定的我国《合同法》的134条规定:"当事人可以在买卖合同中约定买受认为履行支付价款或其他义务的,标的物的所有权属出卖人。"从而确定了我国的所有权保留制度,具有重要意义。但这一规定未臻完善,本文拟就所有权保留制度中出卖人取回权的法律性质作一探讨。

一、学说分歧简介
  在所有权保留买卖中,买受人在约定的特定条件成就前,可以说先占有使用标的物,并享有指向标的物的所有权。而出卖人则以保留所有权的方式作为债权的担保,并且拥有于特定条件下的对于标的物的取回权。出卖人取回标的物后,如买受不于一定期间内履行契约回赎标的物的,出卖人即可将标的物再出卖。
  所为出卖人的取回权,是指在所有权保留买卖中,在买受人有特定的违约行为,致损害出卖人合法权益时,出卖人依法享有的自买受人处取回标的物的权利。对此,《美国统一商法典》的9-503条及我国台湾地区《动产担保交易法》的28条均著有明文。德国民法虽未有明文规定,但学说判例认为基于保留所有权本质及其担保债权的功能,买受人不依约定履行义务,清偿不能或其行为违反契约,尤其因不当使用标的物,致危害出卖人的担保利益时,出卖人得取回标的物。[1]然而,关于出卖人取回权的法律性质,学者间存在诸多争议,主要有[2]:
  1、解除权效力说。此说为林永荣先生所倡。他认为:"契约当事人之一方迟缓给付者,他方得定相当期限,催告其履行,如于期限内仍不履行时,得解除其契约,此为第254条规定关于契约解除之原则。附条件买卖契约,亦为契约之一种,本条之规定,原可适用之,惟本文第28条第1款对于买受人不依约定偿还价款,亦即迟缓给付者,已另定其行使物权与债权之方法,亦即取回标的物,并以之再行出卖,所定附条件买卖契约,因之而失其效力。此项契约之失效,乃基于取回权之行使,故取回权之行使,亦生解除权之效力。"
  2、就物求偿说。此说以王泽鉴先生为代表,并已为我国大陆学者广泛接受。[3]该说认为:"附条件买卖所规定之取回制度,应解释为系出卖人就物求偿价金之特别程序。从整个取回制度以言,其内容与强制执行,基本上似无差异。其取回类似强制执行法的查封;买受人之回赎类似强制执行法的撤销查封;出卖程序类似强制执行法的拍卖程序。"
  3、附法定期限解除契约说。该说为黄静嘉先生所倡,他认为:"取回系附有法定期间之解除契约,出卖人取回买卖契约标的物,契约尚未解除,须至回赎期间已过,买受人不为回赎时,契约始行解除。买受人不待回赎期间经过,即为再出卖之请求,或因有急迫情事,出卖人不待买受人回赎,径行为再出卖者,亦生同样效果。解除契约后原则上双方应负恢复原状之义务,出卖人取回标的物,其所受领之标的物应返还买受人,买受人对使用标的物之代价及所致之损害应负赔偿责任。惟因使用标的物之代价及损害赔偿,往往不易确定,故法律采用再出卖之方式以清算解约后双方之权利义务关系。换言之,再出卖仅为确定请求范围之方法,出卖人由自己受领,但因契约解除而应返还之价金中,扣除经由再出卖所确定买受人使用标的物之代价及损害赔偿,如有余额,应返还买受人,如有不足,出卖人仍得继续追偿。买受人不于一定期间内为再出卖之请求,而出卖人亦于取回标的物后30日内未为再出卖者,系双方放弃清算,出卖人无偿还已付价金之义务,出卖人亦失其费用及损害赔偿请求权。"
上述三说中就物求偿说为通说。虽然三说观点各异,但仍然有其共通之处。出卖人的取回权与再出卖全为两种不同的权利,但上述三说在论述取回权制度的法律性质时,皆不约而同的将再出卖程序纳入进行阐述。这或有再出卖程序与取回权有非常紧密关系的缘故。其二,就物求偿说与附法定期限解除契约说虽然所持观点不同,但在出卖人行使取回权,取回标的物时是否即已发生解除契约此一问题上,却是结论相同,都认为不导致契约的解除。二者所不同的在于出卖人再出卖或买受人已过回赎期不回赎标的物之时,是否发生解除契约的效果的问题上观点各异。

二、各学说之评析
  1、解除权效力说
  此种观点,颇值参考,然而其中存在明显缺陷:(1)从保留所有权的功能上看,其目的在于出卖人债权的担保。出卖人行使取回权,其目的在于借助取回权的行使实现合同,而非解除合同。但次说认为出卖人行使取回权之时即发生解除契约的效力,实与保留所有权的目的不符。(2)此说将出卖人行使取回权的效力等同于再出卖。解除权效力说认为出卖人取回标的物,并再行出卖,则所附条件买卖契约因此而失其效力,因而,取回权的行使亦生解除权的效力。解除权的效力由出卖人取回标的物后再出卖而发生,但这并不意味着出卖人行使取回权之时即发生此等效力。
  2、就物求偿说
  (1)从所有权保留的法律构成上看,王泽鉴先生的立论难谓一贯。所有权保留的法律构成,存在着所有权构成与担保权构成的对立。所有权保留买卖,是从所有权的基石上发展起来的制度。在买受人支付全部价款或完成其他约定的特定条件之前,出卖人保留标的物所有权,在买受人付清价款或完成其他条件后,标的物所有权才发生移转。在承认物权行为独立性的立法下,应认为是所有权移转的物全行为附有停止条件;在认为物权变动是债权行为的当然结果的立法下,则可解释为买卖合同这一债权行为附有停止条件,从而使买卖合同的所有权移转效力受到限制。在所有权构成下,当买受人不履行义务时,因出卖人尚未将标的物所有权移转于买受人,出卖人可以依约行使取回权,取回标的物。从债权担保的角度看,所有权保留买卖中,出卖人在买受人付清价款或完成其他条件之前,以保留所有权的方式作为债权的担保。如果买受人不履行义务,出卖人即可取回标的物,并且即使在价金债权超过诉讼时效,出卖人仍然可以要求买受人返还标的物。所有权保留具有物的担保所特有的优先受偿的效力,但这一效力直接指向的对象不是变价所得的金钱,而是直接采取取回标的物的实物形式。因此,无论是从所有权构成出发还是从担保权构成出发,都?
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  在所有权保留的法律性质这一问题上,王泽鉴先生赞同附停止条件所有权移转说,此说乃是从所有权构成的角度看待所有权保留制度。他认为:"动产担保交易法第26条规定买受人于价金一部或全部清偿或完成特定条件时,始取得标的物之所有权,物权行为之效力系于价金支付之事实,故亦为附停止条件。此向规定符合当事人之意思及交易上之习惯,实称允当。"[4]然而,在论及取回权的法律性质时,王泽鉴先生却从担保权构成出发,认为取回制度系出卖人就物求偿价金的特别程序,并针对"标的物既为出卖人所有,自无就自己所有物变价受偿之理"的见解提出反驳,认为"出卖人于取回后再出卖时放弃保留之所有权,条件因而成就,买受人取得物之所有权。亦可认为,动产担保交易法既然规定出卖人得就自己之物变卖求偿,则法律拟制标的物之所有权已移转于买受人。"[5]所有权保留制度,其法律构成存在所有权构成与担保权构成的对立,王泽鉴先生在所有权保留的法律性质上采所有权构成理论,在出卖人取回权的法律性质上却改采担保权构成理论,其立论实难谓一贯。
  (2)从担保权构成说出发,亦难得出就物求偿说的结论。在所有权保留买卖中,出卖人以保留所有权的方式作为其债权的担保,此种担保所指向的是标的物的实物形式,而不是标的物变价所得的价金。然而,就物求偿说将出卖人的债权担保扩展至标的物变价所得的价金,认为出卖人于取回后再出卖时,买受人因出卖人放弃保留的所有权或法律的拟制而取得标的物所有权,因而出卖人可以就标的物变价受偿。此种观点,笔者不敢苟同。首先,在所有权保留买卖中,出卖人是一种有别于质权、抵押权等的特殊担保方式,即以保留标的物所有权的方式作为其债权的担保。按照就物求偿说,出卖人于取回标的物后再出卖时放弃保留之所有权,或认为法律拟制标的物所有权在再出卖时已移转于买受人,但是出卖人以保留所有权作为债权的担保,标的物所有权既已归于买受人,出卖人即已丧失其所有权,因而也丧失了其债权的担保,这样出卖人凭借何种权利将标的物再出卖,又何以以标的物变价价金优先受偿?其次,认为法律拟制标的物之所有权在再出卖时已转移于买受人并无根据,而且是对出卖人所有权的侵害。在所有权保留买卖中,买受人只有付清价款或完成双方当事人的其他特定条件,方可取得标的物所有权,否则,买受人就不能取得标的物?
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  (3)从所有权构成出发,也得不出就物求偿说的结论。所有权保留是一种附停止条件的所有权移转行为,在买受人付清价款或完成约定的其他条件后,标的物所有权才发生移转。附停止条件法律行为,于条件成就与否未定时,法律行为的效力发生与否,处于未确定状态。就物求偿说人为地拟制出卖人于取回标的物后再出卖时放弃所有权,条件因而成就,买受人取得标的物所有权。按照附条件买卖合同理论,即使出卖人放弃保留的所有权,所有权保留买卖中所附条件亦不能因此而成就,除非双方当事人约定出卖人再出卖时放弃所有权为条件成就。但是,出卖人为自身利益计,万难为此种约定。因而,即使认为出卖人在出卖时放弃保留的所有权,买受人亦无法取得标的物所有权。+出卖人放弃保留的所有权,并不能当然推定其有移转标的物所有权于买受人的意思。出卖人放弃保留的所有权只能导致标的物成为无主之物,这并非拟制出卖人再出卖时放弃标的物所有权的初衷。因此欲使买受人获得所有权,不能从条件着手,而只能通过对出卖人的再出卖作移转标的物所有权于买受人的意思进行拟制,但此种拟制之弊已如上所述。
  3、附法定期限解除契约说
附法定期限解除契约说认为出卖人于取回标的物后再出卖,即发生合同解除的效果。此观点实值赞同,但是该说却完全忽视了合同解除的程序要求,认为买受人不于一定期间内为再出卖请求,而出卖人也未再出卖时,亦发生合同解除的效果,这实与法律规定不符。依台湾民法及判例,解除权的行使须向他方当事人以意思表示为必要,此种意思表示自到达他方当事人时方才发生解除合同的效力。台湾地区法院判例认为,如使用其他社会交易观念认为含有解除合同意义的文字的,亦无不可。[6]在台湾地区《动产担保交易法》未设有明文规定时,有关合同解除的方式应准用台湾民法的有关规定。因此,在所有权保留买卖中,出卖人在一定期间内未为再出卖的,并不能当然视之为合同解除,而应以出卖人有否向买受人为解除合同的意思表示而有所区别。
  有论者认为再出卖程序是出卖人实现价金债权的自我救济手段,他与强制执行法的拍卖程序的目的是相同的,即实现债权。进而认为,附法定期限解除契约说认为再出卖程序仅仅是确定出卖人请求权范围的方式,显然有悖于一般的操作法则,因为现代社会共有估价等便利方式可用,大可不必舍简就繁,采用耗时费力,手续复杂的再出卖程序。[7]笔者认为,再出卖程序确如论者所言,其目的在于实现出卖人的债权,但此债权并非原所有权保留买卖之债,而是合同解除之后产生的损害赔偿之债。合同解除后,不仅使双方当事人从合同约束中解脱出来,而且通常亦使当事人负有返还给付的义务。合同解除并不使合同溯及既往的消灭,违反合同义务所导致的损害赔偿义务,仍然可以主张。依我国台湾地区《动产担保法交易》第28-30条的规定,出卖人取回标的物后,买受人在一定条件下,得回赎该物或请求出卖人将标的物再出卖;出卖人再出卖物品所得价款,应先冲抵费用,次冲利息,再冲原本,如有剩余,应返还买受人,如有不足,出卖人的继续追偿。此规定可以被视为是关于合同解除后产生的恢复原状(损害赔偿)之债的履行的规定。至于再出卖程序的规定,则是法律价值选择的结果。在实现债权时,法律在公平与效率可以有多种选择,其?
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三、本文的观点
  我国《合同法》第134条规定了所有权保留制度,但并未对取回制度作任何规定,也未对出卖人取回标的物后再出卖是否发生解除合同的效力作任何规定。然而,依我国《合同法》第167条的规定,分期付款的买受人未支付到期价金的金额达到全部价款的五分之一的,出卖人可以要求买受人支付全部价款或者解除合同。此项规定明确赋予出卖人在买受人有一定违约行为时的解除权。虽然此项规定的具体内容有欠周全,片面地强调了出卖人的利益,而对买受人的利益则显然保护不够,但是此项规定明确显示了我国在此问题上的立法取向,即在一定条件下赋予出卖人以解除权。依我国《合同法》第94条的规定,当事人一方延迟履行主要债务,经催告后在合理期间内仍为履行的,或当事人一方迟延履行债务或者有其他违约行为致使不能实现合同目的的,或有法律规定的其他情形,另一方当事人可以依法解除合同。因此,在所有权保留买卖中,出卖人取回标的物后,买受人为在一定期限内回赎的,出卖人可以该条规定解除合同。此为出卖人解除合同的实体要件,出卖人如欲达解除合同的效果,则亦需符合解除合同的程序要求。我国《合同法》第9
6条规定,出卖人依94条规定解除合同的,以向买受人为解除合同的意思表示为必要,合同自该意思表示到达买受人时发生解除的效力。因此,出卖人于取回标的物后再出卖的,在再出卖之日前一定期间内通知买受人,此项通知则可视为出卖人向买受人为解除合同的意思表示。回赎期已经过,买受人未为回赎且在法定期间内未请求出卖人再出卖,出卖人在法定期间也未出卖的,应区别出卖人有否向买受人为解除合同的意思表示分别对待,不可当然视之为发生合同解除的效果。出卖人如有为此项通知的,则发生合同解除的效力,如未为此项通知的,则不发生合同解除的效力。




注:[1]王泽鉴:《民法学说与判例研究》,中国政法大学出版社,1998年版,第173页
  [2]王泽鉴:同上,第177-181页
  [3]见王轶:《所有权保留制度研究》,载梁彗星主编:《民商法论丛》第6卷,法律出版社,1997年版,第645页;李辉东::《所有权保留制度研究》,载梁彗星主编:《民商法论丛》第18卷,法律出版社,2001年版,第57页;龙著华:《论所有权保留买卖制度中出卖人的取回权》,载《法商研究》,2000年第4期;周显志、张永忠:《所有权保留的分期付款消费信贷法律问题探讨》,载《暨南学报》(哲社版),2002年第1期
  [4]王泽鉴:同上,第132页
  [5]王泽鉴:同上,第180-181页
[6]黄立:《民法债编总论》,中国政法大学出版社,2002年版,第526页
  [7]龙著华:同上;王泽鉴:同上,第180页
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劳动和社会保障部办公厅关于印发组合机床操作工等28个国家职业标准的通知

劳动部办公厅


劳动和社会保障部办公厅关于印发组合机床操作工等28个国家职业标准的通知
劳动和社会保障部办公厅




各省、自治区、直辖市劳动和社会保障厅(局),国务院有关部门劳动保障工作机构:
根据《中华人民共和国劳动法》,我部会同有关部门制定了组合机床操作工等28个国家职业标准,现印发施行。

附件:28个国家职业标准目录

--------------------------------------------------------
|序号| 职业编码 | 职业名称 ||序号| 职业编码 | 职业名称 |
|--|----------|------------||--|----------|------------|
| 1|6-04-01-07|组合机床操作工 ||15|4-03-03-01|调酒师 |
| 2|6-04-01-08|加工中心操作工 ||16|4-04-03-04|*足部按摩师 |
| 3|6-04-02-05|焊工 ||17|4-07-03-04|锅炉操作工 |
| 4|6-07-01-02|锅炉设备安装工 ||18|4-07-04-01|美容师 |
| 5|6-08-05-01|计算机维修工 ||19|4-07-04-02|美发师 |
| 6|6-21-01-02|贵金属首饰手工制作工 ||20|4-07-05-01|摄影师 |
| 7|6-23-07-01|装饰装修工 ||21|4-07-06-01|眼镜验光员 |
| 8|4-01-01-01|*用户通信终端销售员 ||22|4-07-06-02|眼镜定配工 |
| 9|4-01-01-01|*宝石首饰营业员 ||23|4-07-10-02|家用电器产品维修工 |
|10|4-01-02-01|推销员 ||24|4-07-11-01|办公设备维修工 |
|11|4-03-01-01|中式烹调师 ||25|4-07-12-02|家政服务员 |
|12|4-03-01-02|中式面点师 ||26|3-01-02-01|秘书 |
|13|4-03-02-01|西式烹调师 ||27|3-01-02-02|公关员 |
|14|4-03-02-02|西式面点师 ||28|3-01-02-05|计算机操作员 |
--------------------------------------------------------
*为该职业编码下的工程



2000年7月3日

国务院办公厅转发国务院口岸领导小组关于加强疏港工作的几项规定的通知(附英文)(已失效)

国务院


国务院办公厅转发国务院口岸领导小组关于加强疏港工作的几项规定的通知(附英文)

1984年12月19日,国务院

通知
国务院口岸领导小组制订的《关于加强疏港工作的几项规定》已经国务院批准,现转发给你们,请贯彻执行。

国务院口岸领导小组关于加强疏港工作的几项规定
随着经济体制改革全面深入进行和对外开放政策的进一步贯彻,我国的内、外贸易将更加发展,而港口的综合通过能力近期内还不能得到根本的改善,预计今后相当长的时间,运量与运输能力的矛盾仍很突出。为了保持港口畅通,加速车、船、库场的周转和货物流通,提高社会经济效益,必须加强疏运工作。为此,特作如下规定:
一、坚持计划运输。外贸进出口货物运输计划实行“两级平衡、集中管理”的办法。对于综合平衡后下达的运输计划,各部门都要严格执行。
1、各外贸专业公司、工贸公司要均衡交货。各有关船舶运输公司要均衡派船和到船,避免船舶集中到港。
2、港口对到港外贸船舶的装卸,应严格执行先计划内、后计划外,原则上按照到港先后的顺序安排装卸作业。
3、铁路、公路、水运各运输部门要积极集疏。铁路部门对疏港物资要按交通部、铁道部、经贸部月度平衡计划,优先配车,优先装运;除发生自然灾害和重大事故造成运输中断以及铁路严重堵塞外,在压港期间,原则上不得停装和限装经由限制口的压港物资。
4、物资部门(或代理单位)要按运输部门规定的时间提供流向和落实接储措施。要按货车在站停留时间组织接车、卸车,不得以车代库。有关部门要及时将交货、到船情况通报物资部门。
5、凡未按交通部、铁道部、经贸部月度平衡会议要求报送计划的无计划到船,由当地人民政府对责任单位处以每吨一元的罚款,并按有关规定申报接卸。对已按要求报送计划,因港口、铁路能力不足,未能列入计划的到船,不予罚款。但对集中到港的大宗物资,如超过年度计划月均水平15%的,对责任单位处以每吨五角的罚款。罚款收入由当地人民政府拿出50%-70%用于奖励疏港有成绩的口岸有关单位(包括口岸检查、检验部门)和个人,由省(区、市)口岸办公室具体组织实施。
6、对不属合理流向的到港铁路中转物资,在限额以内的(杂货不超过五百吨,大宗物资不超过一千吨),铁路部门应视为合理流向予以承运。超过限额的,应挂港靠卸。

7、国务院口岸领导小组办公室和省(区、市)口岸办公室会同有关主管部门,对组织货单、订货、交货、派船、港口装卸和后方疏运等环节进行督促检查,并协调、仲裁计划运输中的重大矛盾。
二、为了保持港口枢纽的正常生产秩序,调动各方的积极性,加快车、船、货的周转,根据当前经济体制改革的精神,口岸各有关单位应签订双边或多边的经济协议,明确责任,奖罚分明。协议的内容可以包括船舶速遣滞期、铁路装车数、货车在港停留时间、超计划卸船、装车的奖励等经济制约条款,由当地口岸办公室组织落实。
三、近距离物资,除大宗散货和有铁路专用线的外,原则上用汽车疏运。公路运输企业要千方百计改善经营、降低成本和运价,采取优质服务、薄利多运的原则。各港口的汽车疏运距离由当地省(区、市)人民政府根据本地不同情况作出规定。在规定距离内,除特殊情况下,铁路不予装车。
四、有水路疏运条件的港口,要充分利用水上过驳和船舶疏运。由各省、自治区、直辖市自行接运的物资,在本省运力不能及时保证疏运时,由当地口岸办公室会同有关部门调剂运力,抵达港要按计划内到船安排接卸。
五、在港口压船或其他特殊情况下,经交通部、铁道部、经贸部及有关物资单位的主管部门研究确认的或国务院口岸领导小组办公室决定的改变到港外贸船舶,抵达港的港口和运输部门要按计划内到船对待,货主要积极配合,及时调整货物流向和落实接储措施。所增加的船舶费用由船方负担,增加的国内运费由货主负担。如已订有协议的,按协议办理。
六、凡进口适于装集装箱的一级危险品货物,除零星数量外,原则上采用集装箱运输。烈性危险货物原则上直接换装,货不落地,因特殊情况需进港口库场的,货主必须在限期内提离。
七、凡暂未按本规定第二条签订经济协议的,有关部门应按下列办法处理:
1、凡已卸到港口库场的进口物资,由于货主或代理人未能提供合理流向和落实接储措施等,导致港存期超过十天(四天合理保存期除外,下同)的,从超过日开始,对货主或代理人按规定费率加收堆存保管费50%,超过二十天的,加收100%。由于港口的责任,造成货主未能按期提到货物,港口免收误期的货物保管费,并向货主支付提货空放的车、船费用。凡属月度平衡计划内的物资由于铁路部门的责任,造成货主不能如期提货,所误期的货物保管费由铁路部门负担。对由于人力不可抗拒的原因或其他特殊原因造成货物不能及时提离,免收超期累进堆存保管费用。对责任问题发生分歧时,由当地口岸办公室协调仲裁。
2、在压港期间,货物卸进港口库场超过十四天,经催提仍未提离时,当地口岸办公室可确定进行转栈或转离港区,所发生的一切费用,由货主负担。转栈点的选择应有利于疏运,转栈货物需装火车外运时,铁路部门要按疏港物资对待。
3、进口货物卸货后,堆存期超过两个月,经催提仍未提离的,作为无法交付货物。已报关的由当地人民政府责成港口有关部门没收处理,未报关的由海关没收处理。处理货款按有关规定上交国库。货物处理后,如经查实确因工作失误,应由责任方赔偿货主经济损失。
4、遇有港口严重堵塞的情况,为了紧急疏通,由当地口岸办公室提出建议,经国务院口岸领导小组批准,也可对不超过两个月的在港物资作必要的处理。
八、港口所在地省、自治区、直辖市人民政府应根据本规定,结合本地具体情况,制定疏港工作实施细则,报国务院口岸领导小组备案,并由当地口岸办公室组织执行。
九、本规定自一九八五年二月一日起试行。过去有关规定与本规定有抵触的,以本规定为准。

CIRCULAR OF THE GENERAL OFFICE OF THE STATE COUNCIL CONCERNING THEAPPROVAL AND TRANSMISSION OF SEVERAL PROVISIONS BY THE LEADING GROUP FORPORT AFFAIRS ON STRENGTHENING THE WORK OF UNCLOGGING HARBOURS

Important Notice: (注意事项)
英文本源自中华人民共和国务院法制局编译, 中国法制出版社出版的《中华人民
共和国涉外法规汇编》(1991年7月版).
当发生歧意时, 应以法律法规颁布单位发布的中文原文为准.
This English document is coming from the "LAWS AND REGULATIONS OF THE
PEOPLE'S REPUBLIC OF CHINA GOVERNING FOREIGN-RELATED MATTERS" (1991.7)
which is compiled by the Brueau of Legislative Affairs of the State
Council of the People's Republic of China, and is published by the China
Legal System Publishing House.
In case of discrepancy, the original version in Chinese shall prevail.

Whole Document (法规全文)
CIRCULAR OF THE GENERAL OFFICE OF THE STATE COUNCIL CONCERNING THE
APPROVAL AND TRANSMISSION OF SEVERAL PROVISIONS BY THE LEADING GROUP FOR
PORT AFFAIRS ON STRENGTHENING THE WORK OF UNCLOGGING HARBOURS
(December 19, 1984)
Several Provisions on Strengthening the Work of Unclogging Harbours
formulated by the Leading Group for Port Affairs under the State Council
has been approved by the State Council. It is hereby transmitted to you
for implementation.
SEVERAL PROVISIONS ON STRENGTHENING THE WORK OF UNCLOGGING HARBOURS
With the all-round deepening of the reform of the economic structure and
the further implementation of the opening policy, there will be further
growth in our domestic and foreign trade. However, it is not possible to
improve the comprehensive capacity of passage of our harbours
fundamentally in the near future. Sharp contradiction between freight
volume and transport capacity will remain for a fairly long time in the
foreseeable future. In order to keep the harbours unblocked, raise the
rate of utilization of vehicle, vessels and warehouses, speed up the flow
of goods, and improve social and economic results, it is necessary to
strengthen the work of unclogging harbours. For this purpose, provisions
are formulated as follows:
1. The policy of planned transport must be persisted in. The method of
"two-level balance and centralized administration" shall be adopted in
formulating transport plans for import and export of foreign trade goods.
The transport plans, which are issued after going through the procedure of
comprehensive balance, must be strictly implemented by all the
departments.
(1) All the foreign trade companies and industrial trade corporations
shall deliver goods in a balanced way. All the shipping companies shall
dispatch their ships in a balanced way so as to prevent the ships from
crowding into the harbours.
(2) In arranging loading and unloading foreign trade vessels, the harbours
shall strictly observe the principle of planned ones first and those
outside the plans next, and basically according to the order of their
arrival to the harbours.
(3) The railway, highway and water transport departments shall take an
active part in the work of unclogging harbours. Railway departments shall,
in dispatching wagons, loading and transporting goods, give priority to
the materials from the clogged harbours, according to the monthly balance
plan made jointly by the Ministry of Communications, the Ministry of
Railways and the Ministry of Foreign Economic Relations and Trade. Except
when transport is suspended as a result of natural disasters and major
accidents and when railways are seriously blocked, the loading and
transport of the materials from the clogged harbours may not, in
principle, be stopped or restricted.
(4) Departments in charge of materials and goods (or their agent units)
shall provide direction of transportation for the arrived materials and
take practical measures for receiving and storing the materials according
to the time set by transport departments. They shall unload the materials
and goods from the wagons during their stay at the stations and must not
use the wagons as storehouses. The relevant departments shall notify
departments in charge of materials and goods, timely, of the delivery and
arrival of vessels.
(5) If vessels arrive at harbours without having obtained the approval of
the monthly balance meeting held jointly by the Ministry of
Communications, the Ministry of Railways and the Ministry of Foreign
Economic Relations and Trade, local people's governments shall impose a
fine of one yuan for every ton of goods on the responsible units and the
unloading of such vessels shall be arranged according to relevant
stipulations. Fines shall not be imposed on the vessels which have sent
the plans as demanded but have not been included in the plans due to
inadequacy of capacity of the harbours and railways. However, for large
amounts of materials which have crowded into harbours, if the amount is
15% more than the monthly average of the yearly plan, a fine of 0.5 yuan
for every ton of goods shall be imposed on the responsible units. Local
people's governments shall use 50% to 70% of the income derived from fines
in awarding the relevant units (including departments for harbour
inspection and examination) and individuals at the harbour that have made
achievements in unclogging the harbours. This shall be organized and
implemented by the offices in charge of port affairs in the provinces
(regions and municipalities).
(6) For those materials which have arrived at harbours to be transferred
through railways to certain places and which do not belong to reasonable
flow, if the amount is within the limit (less than 500 ton for sundry
goods, less than 1,000 ton for a large bulk of materials), railway
departments shall undertake their transport as reasonable flow. If the
amount exceeds the limit, the materials shall be unloaded at the harbours.
(7) Leading Group for Port Affairs of the State Council and the offices in
charge of port affairs in the provinces (regions and municipalities)
shall, together with the relevant competent departments, conduct
supervision and examination over such links of transportation as
organizing sources of goods, ordering goods, delivery of goods, dispatch
of vessels, loading and unloading at harbours and dispersion in transport,
and shall handle and arbitrate major problems which arise in planned
transport.
2. In order to maintain normal production order at harbours, bring into
full play the initiative of all the parties and raise the rate of
turn-rounds of vehicle, vessels and goods, the relevant units at the ports
shall, in the spirit of the current reform of the economic structure, sign
bilateral or multilateral economic agreements, define each party's
responsibilities and clearly observe the policy of awards and penalties.
The content of the agreements may include provisions concerning period of
detention for vessels, number of railway wagons to be loaded, the time
freight trains may be allowed to stay at harbours, awards to those who go
beyond the plans in unloading goods from vessels and loading wagons and
trucks, etc. - which, as economic restrictive clauses for the parties,
shall be implemented under the aegis of the local offices for port
affairs.
3. Except bulk cargo and those which can be transported through special
railway lines, the materials destined for places not far from harbours
shall in principle be transported by trucks. Highway transportation
enterprises shall try every means to improve business management, lower
the cost and freight rates, and apply the business policies of good
service, and small profits but quick turnover. The distance limit within
which the materials and goods from harbours must be transported by trucks
shall be set by local people's government of the province (region or
municipality) in accordance with the local conditions.
Except for special circumstances, the materials and goods for places
within the prescribed distance limit shall not be transported through
railways.
4. The harbours from which materials and goods can be transported by water
shall make full use of vessels. In case the provinces, autonomous regions
and municipalities directly under the Central Government are unable to
transport timely their materials and goods from clogged harbours, local
offices for port affairs and the relevant departments shall organize
transport for them, and the harbours of arrival shall treat such vessels
as those within the plan and arrange unloading for them.
5. In case a harbour is clogged or in other special circumstances, the
Ministry of Communications, the Ministry of Railways and the Ministry of
Foreign Economic Relations and Trade as well as the competent departments
of the relevant units in charge of materials and goods, or the Leading
Group for Port Affairs of the State Council, may decide to change the
harbour of arrival for foreign trade vessels. The ports of arrival for
those vessels and departments for transportation shall treat them equally
as those within their plans and, with the close cooperation of the owners
of the cargo, adjust the direction of transportation for the cargo and
take measures for receiving and storing the cargo. The extra shipping
expenses shall be borne by the shipping companies and the extra domestic
freight, by the owners. If agreements have been signed, the agreements
shall apply.
6. Except for small quantities, imported grade-1 dangerous goods shall be,
in principle, transported in containers. Highly dangerous goods shall be,
in principle, transloaded directly without touching the ground. If it is
necessary to move them onto storage ground in extraordinary circumstances,
the owners must take delivery of the goods and leave the ground within a
time limit.
7. If economic agreements have not yet been signed in accordance with
Article 2 of these Provisions, the relevant departments shall handle the
cases according to the following measures:
(1) In case the imported materials which have been unloaded onto harbour
storage grounds remain at the harbour for more than 10 days (the 4 days of
reasonable storage period is not included, the same below) because the
owners or their agents fail to provide reasonable directions of
transportation and adopt practicable measures for receiving and storing
the goods, an additional storage fee, which is 50% of the set rate, shall
be collected from the owners or their agents starting from the first day
that is overdue; an additional storage fee, which is 100% of the set rate,
shall be collected if the materials are overdue for more than 20 days. If
the owners cannot take delivery of their goods in time because of the
harbour's responsibility, the harbour authority shall exempt them from
additional storage fees and pay the owners the expenses for hiring the
vehicle and vessels which have come in vain for the goods. If the owners
cannot take delivery of the goods which are within the monthly balance
plans because of the railway department's responsibility, the railway
department shall bear the additional storage fees. If goods cannot be
taken delivery of in time due to force majeure or other special reasons,
additional storage fees shall be exempted. Local offices for port affairs
shall mediate and arbitrate any disputes over issues of responsibilities.
(2) In case any unloaded and stored goods remain on the storage grounds of
a clogged harbour for more than 14 days, and the owners has already been
urged to take delivery of the goods, the local office for port affairs may
decide to move the goods to a warehouse or move them outside the harbour
area. The owner shall bear all the expenses arising therefrom. The choice
of the warehouses shall facilitate transportation of goods from the
clogged harbour. When the owners apply for train wagons for the
transportation of the goods in the warehouses, railway departments shall
treat their goods as materials from clogged harbours.
(3) In case imported goods remain at a harbour for more than two months
and the owner has not taken delivery of the goods although he has been
urged to do so, they shall be treated as goods which cannot be delivered.
Those goods which have gone through Customs declaration shall be
confiscated by the relevant department at the harbour according to the
instructions of the local people's government. Those goods which have not
gone through Customs declaration shall be confiscated by the Customs. The
income from the sale of the confiscated goods shall be turned over to the
State treasury according to the relevant stipulations. If it is proved
that the goods have been wrongly confiscated and sold, the party
responsible for the error shall pay for the economic loss of the owner.
(4) When a harbour is seriously blocked, in order to unclog it as soon as
possible, upon the suggestion of the local office for port affairs and the
approval of the Leading Group for Port Affairs of the State Council, some
materials which have remained at the harbour for less than two months may
also be subjected to necessary treatment.
8. The provinces, autonomous regions and municipalities directly under the
Central Government, where there are harbours, shall, in accordance with
these Provisions, formulate rules for implementing the work of unclogging
harbours in the light of their respective conditions and report to the
Leading Group for Port Affairs of the State Council for the record. Local
offices for port affairs shall be responsible for the implementation of
the rules.
9. These Provisions shall be trial implemented as of February 1, 1985. If
any existing provisions in this regard conflict with these Provisions,
these Provisions shall prevail.