海南省三亚市中级人民法院
p t ; ” > 行 政 判 决 书
（2016）琼02行终147号
上诉人（原审被告）三亚市天涯区城市管理局，住所地三亚市凤凰路319号。
法定代表人谭云权，该局局长。
委托代理人符文基，该局工作人员。
被上诉人（原审原告）三亚河翔鹭休闲俱乐部，住所地三亚市新风桥西侧桥头底场地。
法定代表人王俊梅，该俱乐部总经理。
委托代理人陈家圣，海南云帆律师事务所律师。
上诉人三亚市天涯区城市管理局（以下简称天涯城管局）因被上诉人三亚河翔鹭休闲俱乐部诉其规划行政管理强制拆除纠纷一案，不服三亚市城郊人民法院2016年9月26日作出的（2016）琼0271行初72号行政判决，通过原审法院向本院提起上诉。本院受理后，依法组成合议庭，于2017年1月17日公开开庭进行审理。上诉人天涯城管局委托代理人符文基，被上诉人三亚河翔鹭休闲俱乐部法定代表人王俊梅及其委托代理人陈家圣到庭参加了诉讼。本案现已审理终结。
本案被诉行政行为：2015年10月6日，上诉人天涯城管局对被上诉人三亚河翔鹭休闲俱乐部位于三亚市新风桥三亚河的水上娱乐项目设施及岸上服务设施实施了强制拆除。
原审法院查明：2016年1月12日以王俊梅为法定代表人的三亚多彩游艇服务有限公司（以下简称多彩公司）向本院起诉确认天涯城管局拆除其位于三亚河上的水上娱乐游艇码头及岸上设施的行政行为违法（案号为（2016）琼0271行初21号），天涯城管局在庭审答辩中认为其拆除行为针对的是河翔鹭休闲俱乐部，而不是多彩公司，原告的主体资格不适，认为河翔鹭俱乐部才是适格主体。经本院释明，多彩公司撤回起诉，重新以河翔鹭休闲俱乐部作为原告向本院起诉。2015年9月8日被告天涯城管局对原告作出001号改正通知书，2015年10月6日被告天涯城管局强制拆除了原告的水上娱乐经营及岸上服务设施，拆除的范围包括临时浮动游艇码头、岸上服务设施、接待休息室、更衣室、绿化盆景、电器、木桌、木椅吧台等。
另查，2005年3月王俊梅注册成立河翔鹭俱乐部，用于承包经营三亚城市公园发展有限公司城市乐园区域的水上娱乐观光项目。2004年三亚市人民政府发布三府[2004]107号《三亚市两河三岸管理工作方案》，成立”两河三岸管理队”，负责对两河三岸环卫清扫保洁、园林绿化保护、市政设施维修养护、河道生态环境、河岸容貌和社会秩序的综合协调管理。2007年8月6日两岸三岸管理队与原告河翔鹭休闲俱乐部签订《新风桥休闲广场管理协议书》，将位于新风桥西侧桥头底空旷的场地（约100平米）及广场前水面（建临时码头）交由原告经营休闲项目，同时双方又签订《新风桥休闲广场运营安全管理协议》，将新风桥、西侧桥头交由河翔鹭俱乐部经营。2007年12月4日三亚市交通局以三交[2007]266号文件批准原告河翔鹭俱乐部在三亚河新风桥附近建设临时游艇码头，作为经营游艇娱乐项目场所，原告出资建成了该临时码头，并进行水上娱乐经营及岸上服务设施经营。
原审法院认为，本案争议焦点有三个：1、原告是否具备本案的行政诉讼主体资格；2、被告天涯城管局作出被诉的拆除行政行为认定事实是否清楚；3、被告天涯城管局作出被诉的拆除行政行为程序是否合法。
关于原告是否具备本案的行政诉讼主体资格问题
在审理原告多彩公司诉被告天涯城管局（案号为（2016）琼0271行初21号）一案中，被告已清楚地答辩河翔鹭俱乐部才是其行政行为的相对人，且001号责令改正通知书针对的相对人是河翔鹭休闲俱乐部，经营新风桥三亚河水上娱乐项目及岸上服务项目的也是河翔鹭俱乐部，因此被告拆除行为针对的是河翔鹭俱乐部，河翔鹭俱乐部具有本案行政诉讼主体资格。
被告天涯城管局作出拆除原告水上娱乐经营设施及岸上服务设施的行政行为，认定事实是否清楚。
三亚市政府发布的《三亚市两河三岸管理工作方案》，规定”两河三岸管理队”是三亚河道生态环境及河岸容貌和社会秩序的法定管理机关，2007年两河三岸管理队与原告河翔鹭休闲俱乐部签订的《新风桥休闲广场管理协议书》和《新风桥休闲广场运营安全管理协议》，确立了原告经营新风桥三亚河水上娱乐项目及岸上服务项目是合法经营，其经营设施也是合法设施。被告作出001号责令改正通知书认为原告非法占用公共用地经营，属认定事实错误；相应地，被告作出强制拆除原告的经营设施的行政行为，也属于认定事实错误。由于原告与被告签订了两份管理协议，被告若拆除原告的经营设施及服务设施，只能通过解除协议（即合同）来拆除清场，而不能对原告采取强制拆除措施、
被告作出被诉的强制拆除行政行为程序是否合法。
被告天涯城管局于2015年10月6日作出强制拆除原告经营设施及服务设施的行政行为，没有制作行政处罚决定书，就迳行强制拆除，强制实施，被告的行为违反了《行政处罚法》第三十九条的规定，应予以确认违法。
综上，原告河翔鹭俱乐部具有本案诉讼主体资格，被告作出强制拆除行政行为认定事实错误，程序违法，应予以撤销，但该行政行为已执行完毕，不具有可撤销内容，故予以确认违法，依照《中华人民共和国行政处罚法》第三十九条、《中华人民共和国行政诉讼法》第七十四条第二款第（一）项的规定，判决如下：确认被告三亚市天涯区城市管理局2015年10月6日作出的强制拆除原告三亚河翔鹭休闲俱乐部在新风桥三亚河经营的水上娱乐项目设施及岸上服务设施的行政行为违法。
上诉人天涯城管局上诉称，原审判决认定事实不清。1、被上诉人所建水上娱乐经营设施及岸上服务设施属于违法建筑，上诉人所作行政行为认定事实清楚。本案中上诉人实施强拆行为依据的并非天城管（六大队）改字[2015]1-001号责令（限期）改正通知书（以下简称001号责令改正通知书），而是天城管（一大队）改字[2015]2-517号责令（限期）改正通知书（以下简称517号责令改正通知书）。上诉人作出的001号责令改正通知书系针对占道经营行为，而517号责令改正通知书系针对未经法定程序违法建设行为。故上诉人实施强拆行为实际是针对被上诉人违法建设作出的。根据我国《城乡规划法》的规定，在城市、镇规划区内进行建筑物、构筑物、道路、管线和其他工程建设的，建设单位或者个人应当向城市、县人民政府城乡规划主管部门或者省、自治区、直辖市人民政府确定的镇人民政府申请办理建设工程规划许可证。被上诉人所建岸上房屋及水上设备设施没有经过上述法律规定履行报建手续擅自兴建，应当属于违法建筑。2、上诉人作出强制拆除行为程序合法。根据我国《城乡规划法》、《海南省城乡规划条例》的相关规定，未取得建设工程规划许可证，尚可采取改正措施消除对规划实施的影响的，限期改正。当事人不停止建设或者逾期不拆除的，可以采取强制拆除等措施。在上诉人发出的517号责令改正通知书中已经明确要求限期拆除，如不拆除将采取强制措施，故上诉人直接进行拆除程序合法。综上，原判决认定事实不清，导致法律适用错误，请求：撤销海南省三亚市城郊人民法院（2016）琼0271行初72号行政判决书，并依法改判驳回被上诉人对上诉人的诉讼请求。
被上诉人三亚河翔鹭休闲俱乐部辩称，一、上诉人作出强制拆除行政行为认定事实错误。如一审判决陈述所认定事实，被上诉人所经营新风桥三亚河上娱乐项目及岸上服务项目是合法经营，其经营设施系合法设施。上诉人作出001号责令改正通知书认为答辩人非法占用公共用地经营，属认定事实错误。据此，上诉人作出强制拆除答辩人经营设施的行为属认定事实错误。二、上诉人作出强制拆除行政行为程序合法。上诉人在强制拆除答辩人经营设施之前，没有作出行政处罚决定和强制拆除决定之前，在没有确认答辩人经营设施违法的情况下，就迳行强制拆除和实施，违反《中华人民共和国行政处罚法》39条等相关规定，程序违法。三、一审判决事实清楚、程序合法，应予维持。一审判决认定上诉人作出的强拆行为事实不清、程序违法的基础上，认为对上诉人所作行政行为应予撤销，但该行政行为已经执行完毕，不具有可撤销内容，据此确认违法。一审判决事实清楚、程序合法，应予维持。综上，请求：驳回上诉人的上诉请求，维持一审判决。
二审中，上诉人天涯城管局对原审认定强拆执行依据为1-001号责令改正通知书这一事实提出异议，认为强拆执行依据为2-517号责令改正通知书而非1-001号责令改正通知书。经审查，天涯城管局于2015年9月8日作出1-001号责令改正通知书后，又于2015年10月4日作出2-517号责令改正通知书并送达被上诉人，被上诉人在原审中也作为上诉人强拆行为违法的证据向原审法院提交。上诉人实施强拆执行行为的依据为后作出的2-517号责令改正通知书而非1-001号责令改正通知书，故原审认定强拆执行依据为1-001号责令改正通知书这一事实有误，本院予以纠正。
二审查明的其他事实与原审查明的事实基本一致，本院依法予以确认。
本院认为，一、根据三亚市政府2004年9月14日印发的《三亚市两河三岸管理工作方案的通知》之规定，两河三岸管理区范围的基本功能定位之一为：将旅游休闲引入市区，打造城市河道旅游线，为市民和游客的夜间休闲娱乐、游览观光提光提供去处。被上诉人通过与相关单位签订承包经营、场地租赁经营、管理协议、运营安全管理协议等形式，在经三亚市水务局、三亚市交通局批复同意后，为经营水上娱乐项目所建设的临时浮动码头及岸上服务设施，是否对两河三岸管理区范围的规划实施产生影响且属无法采取改正措施消除影响的情形，上诉人并未提供相适证据予以证明，故上诉人作出责令限期拆除强制措施主要证据不足。二、依照《中华人民共和国行政强制法》第四十四条、《海南省查处违法建筑若干规定》第十三条之规定，强制拆除违法建筑，应当提前五个工作日在现场公告强制拆除决定，告知实施强制拆除的时间、相关依据、当事人的权利义务等。上诉人在未作出及公告强制拆除决定的情形下，于2015年10月4日作出2-517号责令改正通知书即于2015年10月6日实施强制拆除行为，违反法定程序。
综上，原审判决认定事实基本清楚，判决结果并无不当。上诉人天涯城管局的上诉请求和上诉理由依法不能成立，本院依法不予支持。依照《中华人民共和国行政诉讼法》第八十九条第一款第（一）项之规定，判决如下：
驳回上诉，维持原判。
二审案件受理费50元，由上诉人三亚市天涯区城市管理局负担。
本判决为终审判决。
审判长陈兴科
审判员张维青
审判员吉红
二Ｏ一七年二月二十三日
书记员熊冰清
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