海南省高级人民法院
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（2017）琼行终1688号
海南省高级人民法院
行政裁定书
（2017）琼行终1688号
上诉人（原审原告）：海南弘业房地产开发有限公司，住所地海南省海口市秀华路2号一号楼东侧704房。
法定代表人：张文豪，董事长。
上诉人（原审原告）：海南弘升实业投资有限公司，住所地海南省海口市滨海大道南洋大厦主楼2501室。
法定代表人：ＸＸＸ，总经理。
上列上诉人的共同委托诉讼代理人：赵振华，海南海大平正律师事务所律师。
上列上诉人的共同委托诉讼代理人：熊磊，海南海大平正律师事务所律师。
被上诉人（原审被告）：海口市人民政府，住所地海南省海口市秀英区长滨一路市政府第二办公区。
法定代表人：倪强，市长。
委托诉讼代理人：曾子珊，海口市人民政府法制局干部。
委托诉讼代理人：郭刻盛，海南瑞来律师事务所律师。
被上诉人（原审被告）：海口市国土资源局，住所地海南省海口市秀英区长滨路市政府第二办公区15栋北楼。
法定代表人：韩艺师，局长。
委托诉讼代理人：司楠楠，海口市国土资源局工作人员。
委托诉讼代理人：郭刻盛，海南瑞来律师事务所律师。
上诉人海南弘业房地产开发有限公司（以下简称弘业公司）、海南弘升实业投资有限公司（以下简称弘升公司）因与被上诉人海口市人民政府（以下简称海口市政府）、海口市国土资源局（以下简称海口市国土局）违法要求履行义务一案，不服海南省海口市中级人民法院（2017）琼01行初772号行政裁定，向本院提起上诉。本院于2017年11月9日立案后，依法组成合议庭对本案进行审理。并于2017年11月21日组织听证，上诉人弘业公司、弘升公司的共同委托诉讼代理人赵振华、熊磊，被上诉人海口市政府的委托诉讼代理人曾子珊，被上诉人海口市国土局的委托诉讼代理人司楠楠以及二被上诉人的共同委托诉讼代理人郭刻盛参加听证。本案现已审理终结。
一审法院认为，依照行政诉讼法及其司法解释的相关规定，公民、法人或者其他组织直接向人民法院提起诉讼，作出行政行为的行政机关是被告。当事人不服经上级行政机关批准的具体行政行为，向人民法院提起诉讼的，应当以在对外发生法律效力的文书上署名的行政机关为被告。因此，本案的适格被告是海口市国土局，而非海口市政府。一审法院在依法向弘业公司、弘升公司告知海口市政府不是本案的适格被告，弘业公司、弘升公司仍不同意变更被告的情况下，遂裁定驳回其对海口市政府的起诉,并就其对海口市国土局的起诉作另行处理。
上诉人弘业公司、弘升公司上诉请求撤销一审裁定，判令一审法院对本案予以立案审理。事实和理由：上诉人同时起诉了海口市政府和海口市国土局，一审法院就起诉海口市政府的部分先行作出了裁判缺乏法律依据。我国行政诉讼法及其司法解释中均没有”部分先行判决”的规定。尽管《中华人民共和国民事诉讼法》第一百五十三条规定：”人民法院审理案件，其中一部分事实已经清楚，可以就该部分先行判决。”但”部分先行判决”是属于判决和裁定的内容，不属于本案行政诉讼可以参照适用民事诉讼法的范畴。一审裁定作出的”部分先行判决”没有法律依据，严重违反法定程序，请求二审法院予以撤销。
被上诉人海口市政府答辩称：一、海口市政府不是本案的适格被告。本案中，作出被诉行政行为的主体是海口市国土局，并非海口市政府。海口市政府的审批行为属于行政机关内部的审批程序，海口市政府并未单独作出对上诉人权利义务产生影响的行政行为。一审裁定驳回上诉人对海口市政府的起诉，认定事实清楚，适用法律正确。二、《最高人民法院关于适用<中华人民共和国行政诉讼法>若干问题的解释》第三条第一款第（三）项规定：”错列被告且拒绝变更的，已经立案的，应当裁定驳回起诉。”一审法院在已经就海口市政府不是本案适格被告的问题向上诉人进行释明，但上诉人仍不同意变更被告的情况下，依法裁定驳回其对海口市政府的起诉符合法律规定。
被上诉人海口市国土局的答辩意见与海口市政府的答辩意见一致。
本院认为，人民法院对依法应当受理的第一审行政案件实行立案登记制，人民法院应当依照法律规定的起诉条件对当事人的起诉进行审查后，决定是否立案。本案中，一审法院立案庭经对上诉人的起诉材料进行初步审查，确认海口市政府并非作出被诉行政行为的主体。根据《最高人民法院关于执行<中华人民共和国行政诉讼法>若干问题的解释》第十九条之规定，”当事人不服经上级行政机关批准的具体行政行为，向人民法院提起诉讼的，应当以在对外发生法律效力的文书上署名的行政机关为被告。”本案的适格被告是海口市国土局，而非海口市政府。《最高人民法院关于适用<中华人民共和国行政诉讼法>若干问题的解释》第三条第一款第(三)项规定：”错列被告且拒绝变更的。已经立案的，应当裁定驳回起诉。”一审法院立案庭经初步审查发现二上诉人对海口市政府的起诉明显不符合起诉条件，经释明后二上诉人仍拒绝变更被告，为节省司法资源，防止规避级别管辖，作出不予立案的裁定属于具有法律依据的职权行为。因二上诉人对海口市国土局的起诉可由有管辖权的人民法院审理，一审法院决定另行处理并无不当。一审法院对本案二被上诉人的主体资格分别进行审查处理没有违反法律规定，符合立法原意，并未有损于上诉人的合法权益，本院予以支持。二上诉人的上诉理由不能成立，本院不予采纳。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，裁定如下：
驳回上诉，维持原裁定。
本裁定为终审裁定。
审判长叶珊茹
审判员魏文豪
审判员王山元
二〇一七年十二月十一日
书记员李宗帅
附相关法律条文:
《中华人民共和国行政诉讼法》
第八十九条人民法院审理上诉案件，按照下列情形，分别处理：
（一）原判决、裁定认定事实清楚，适用法律、法规正确的，判决或者裁定驳回上诉，维持原判决、裁定；
......
《最高人民法院关于执行<中华人民共和国行政诉讼法>
若干问题的解释》
第六十三条裁定适用于下列范围：
......
（二）驳回起诉；
......
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caseinfo=JSON.stringify({\"文书ID\":\"905c4537-7ca0-46f8-a080-34762d6599d2\",\"案件名称\":\"原告中国建设银行股份有限公司南安支行（以下简称建行南安支行）与被告郭水福、杨艳琼、南安骏杰房地产开发有限公司（以下简称骏杰房地产公司）金融借款合同纠纷一审民事判决书\",\"案号\":\"（2015）南民初字第226号\",\"审判程序\":\"一审\",\"上传日期\":\"\\\/Date(1429241720000)\\\/\",\"案件类型\":\"2\",\"补正文书\":\"2\",\"法院名称\":\"南安市人民法院\",\"法院ID\":\"1329\",\"法院省份\":\"福建\",\"法院地市\":\"泉州市\",\"法院区县\":\"南安市\",\"法院区域\":\"东中部\",\"文书类型\":null,\"文书全文类型\":null,\"裁判日期\":null,\"结案方式\":null,\"效力层级\":null,\"不公开理由\":null,\"DocContent\":\"\",\"文本首部段落原文\":\"\",\"诉讼参与人信息部分原文\":\"\",\"诉讼记录段原文\":\"原告中国建设银行股份有限公司南安支行（以下简称建行南安支行）与被告郭水福、杨艳琼、南安骏杰房地产开发有限公司（以下简称骏杰房地产公司）金融借款合同纠纷一案，本院于2014年12月23日立案受理，依法由代理审判员庄慧虹独任审判，并于2015年1月22日公开开庭进行了审理。原告的委托代理人郭建幸、被告郭水福、被告杨艳琼、被告骏杰房地产公司的委托代理人黄震宁到庭参加诉讼。本案现已审理终结\",\"案件基本情况段原文\":\"\",\"裁判要旨段原文\":\"\",\"判决结果段原文\":\"\",\"附加原文\":\"附页：\\\n一、判决引用的主要法律条文：\\\n1、《中华人民共和国合同法》\\\n第九十四条有下列情形之一的，当事人可以解除合同：\\\n（一）因不可抗力致使不能实现合同目的；\\\n（二）在履行期限届满之前，当事人一方明确表示或者以自己的行为表明不履行主要债务；\\\n（三）当事人一方迟延履行主要债务，经催告后在合理期限内仍未履行；\\\n（四）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；\\\n（五）法律规定的其他情形。\\\n第二百零五条借款人应当按照约定的期限支付利息。对支付利息的期限没有约定或者约定不明确，依照本法第六十一条的规定仍不能确定，借款期间不满一年的，应当在返还借款时一并支付；借款期间一年以上的，应当在每届满一年时支付，剩余期间不满一年的，应当在返还借款时一并支付。\\\n第二百零六条借款人应当按照约定的期限返还借款。对借款期限没有约定或者约定不明确，依照本法第六十一条的规定仍不能确定的，借款人可以随时返还；贷款人可以催告借款人在合理期限内返还。\\\n第二百零七条借款人未按照约定的期限返还借款的，应当按照约定或者国家有关规定支付逾期利息。\\\n2、《中华人民共和国担保法》\\\n第十八条当事人在保证合同中约定保证人与债务人对债务承担连带责任的，为连带责任保证。\\\n连带责任保证的债务人在主合同规定的债务履行期届满没有履行债务的，债权人可以要求债务人履行债务，也可以要求保证人在其保证范围内承担保证责任。\\\n第二十一条保证担保的范围包括主债权及利息、违约金、损害赔偿金和实现债权的费用。保证合同另有约定的，按照约定。\\\n当事人对保证担保的范围没有约定或者约定不明确的，保证人应当对全部债务承担责任。\\\n第三十一条保证人承担保证责任后，有权向债务人追偿。\\\n第三十三条本法所称抵押，是指债务人或者第三人不转移对本法第三十四条所列财产的占有，将该财产作为债权的担保。债务人不履行债务时，债权人有权依照本法规定以该财产折价或者以拍卖、变卖该财产的价款优先受偿。\\\n前款规定的债务人或者第三人为抵押人，债权人为抵押权人，提供担保的财产为抵押物。\\\n第五十三条债务履行期届满抵押权人未受清偿的，可以与抵押人协议以抵押物折价或者以拍卖、变卖该抵押物所得的价款受偿；协议不成的，抵押权人可以向人民法院提起诉讼。\\\n抵押物折价或者拍卖、变卖后，其价款超过债权数额的部分归抵押人所有，不足部分由债务人清偿。\\\n3、《中华人民共同国物权法》\\\n第一百九十五条债务人不履行到期债务或者发生当事人约定的实现抵押权的情形，抵押权人可以与抵押人协议以抵押财产折价或者以拍卖、变卖该抵押财产所得的价款优先受偿。协议损害其他债权人利益的，其他债权人可以在知道或者应当知道撤销事由之日起一年内请求人民法院撤销该协议。抵押权人与抵押人未就抵押权实现方式达成协议的，抵押权人可以请求人民法院拍卖、变卖抵押财产。抵押财产折价或者变卖的，应当参照市场价格。\\\n4、《中华人民共和国民事诉讼法》\\\n第五十一条原告可以放弃或者变更诉讼请求。被告可以承认或者反驳诉讼请求，有权提起反诉。\\\n5、最高人民法院《关于适用﹤中华人民共和国担保法﹥若干问题的解释》\\\n第四十二条人民法院判决保证人承担保证责任或者赔偿责任的，应当在判决书主文中明确保证人享有担保法第三十一条规定的权利。判决书中未予明确追偿权的，保证人只能按照承担责任的事实，另行提起诉讼。\\\n保证人对债务人行使追偿权的诉讼时效，自保证人向债权人承担责任之日起开始计算。\\\n第四十七条以依法获准尚未建造的或者正在建造中的房屋或者其他建筑物抵押的，当事人办理了抵押物登记，人民法院可以认定抵押有效。\\\n6、最高人民法院《关于民事诉讼证据若干问题的规定》\\\n第七十四条诉讼过程中，当事人在起诉状、答辩状、陈述及其委托代理人的代理词中承认的对己方不利的事实和认可的证据，人民法院应当予以确认，但当事人反悔并有相反证据足以推翻的除外。\\\n二、执行申请提示：\\\n《中华人民共和国民事诉讼法》\\\n第二百三十六条发生法律效力的民事判决、裁定，当事人必须履行。一方拒绝履行的，对方当事人可以向人民法院申请执行，也可以由审判员移送执行员执行。\\\n调解书和其他应当由人民法院执行的法律文书，当事人必须履行。一方拒绝履行的，对方当事人可以向人民法院申请执行。\\\n第二百三十九条申请执行的期间为二年。申请执行时效的中止、中断，适用法律有关诉讼时效中止、中断的规定。\\\n前款规定的期间，从法律文书规定履行期间的最后一日起计算；法律文书规定分期履行的，从规定的每次履行期间的最后一日起计算；法律文书未规定履行期间的，从法律文书生效之日起计算。\\\n\\\n\",\"文本尾部原文\":\"\"});$(document).attr(\"title\",\"原告中国建设银行股份有限公司南安支行（以下简称建行南安支行）与被告郭水福、杨艳琼、南安骏杰房地产开发有限公司（以下简称骏杰房地产公司）金融借款合同纠纷一审民事判决书\");$(\"#tdSource\").html(\"原告中国建设银行股份有限公司南安支行（以下简称建行南安支行）与被告郭水福、杨艳琼、南安骏杰房地产开发有限公司（以下简称骏杰房地产公司）金融借款合同纠纷一审民事判决书
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以依法获准尚未建造的或者正在建造中的房屋或者其他建筑物抵押的，当事人办理了抵押物登记，人民法院可以认定抵押有效[ly]\'},{法条名称:\'第四十二条第一款\',法条内容:\'
第四十二条
人民法院判决保证人承担保证责任或者赔偿责任的，应当在判决书主文中明确保证人享有担保法第三十一条规定的权利。判决书中未予明确追偿权的，保证人只能按照承担责任的事实，另行提起诉讼。[ly]
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第九十四条 有下列情形之一的，当事人可以解除合同： [ly] （一）因不可抗力致使不能实现合同目的；[ly]
（二）在履行期限届满之前，当事人一方明确表示或者以自己的行为表明不履行主要债务；[ly]
（三）当事人一方迟延履行主要债务，经催告后在合理期限内仍未履行；[ly] （四）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；[ly]
（五）法律规定的其他情形。[ly]\'},{法条名称:\'第二百零五条\',法条内容:\' 第二百零五条
借款人应当按照约定的期限支付利息。对支付利息的期限没有约定或者约定不明确，依照本法第六十一条的规定仍不能确定，借款期间不满一年的，应当在返还借款时一并支付；借款期间一年以上的，应当在每届满一年时支付，剩余期间不满一年的，应当在返还借款时一并支付。[ly]\'},{法条名称:\'第二百零六条\',法条内容:\'
第二百零六条
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第二百零七条
借款人未按照约定的期限返还借款的，应当按照约定或者国家有关规定支付逾期利息。[ly]\'}]},{法规名称:\'《中华人民共和国担保法》\',Items:[{法条名称:\'第十八条第一款\',法条内容:\'
第十八条 当事人在保证合同中约定保证人与债务人对债务承担连带责任的，为连带责任保证。[ly]
连带责任保证的债务人在主合同规定的债务履行期届满没有履行债务的，债权人可以要求债务人履行债务，也可以要求保证人在其保证范围内承担保证责任。[ly]\'},{法条名称:\'第二十一条第一款\',法条内容:\'
第二十一条 保证担保的范围包括主债权及利息、违约金、损害赔偿金和实现债权的费用。保证合同另有约定的，按照约定。[ly]
当事人对保证担保的范围没有约定或者约定不明确的，保证人应当对全部债务承担责任。[ly]\'},{法条名称:\'第三十一条\',法条内容:\' 第三十一条
保证人承担保证责任后，有权向债务人追偿。[ly]\'},{法条名称:\'第三十三条第一款\',法条内容:\' 第三十三条
本法所称抵押，是指债务人或者第三人不转移对本法第三十四条所列财产的占有，将该财产作为债权的担保。债务人不履行债务时，债权人有权依照本法规定以该财产折价或者以拍卖、变卖该财产的价款优先受偿。[ly]
前款规定的债务人或者第三人为抵押人，债权人为抵押权人，提供担保的财产为抵押物。[ly]\'},{法条名称:\'第五十三条第一款\',法条内容:\'
第五十三条
债务履行期届满抵押权人未受清偿的，可以与抵押人协议以抵押物折价或者以拍卖、变卖该抵押物所得的价款受偿；协议不成的，抵押权人可以向人民法院提起诉讼。[ly]
抵押物折价或者拍卖、变卖后，其价款超过债权数额的部分归抵押人所有，不足部分由债务人清偿。[ly]\'}]},{法规名称:\'《中华人民共和国物权法》\',Items:[{法条名称:\'第一百九十五条第一款\',法条内容:\'
第一百九十五条
债务人不履行到期债务或者发生当事人约定的实现抵押权的情形，抵押权人可以与抵押人协议以抵押财产折价或者以拍卖、变卖该抵押财产所得的价款优先受偿。协议损害其他债权人利益的，其他债权人可以在知道或者应当知道撤销事由之日起一年内请求人民法院撤销该协议。[ly]
抵押权人与抵押人未就抵押权实现方式达成协议的，抵押权人可以请求人民法院拍卖、变卖抵押财产。[ly]
抵押财产折价或者变卖的，应当参照市场价格。[ly]\'}]},{法规名称:\'《中华人民共和国民事诉讼法（2013年）》\',Items:[{法条名称:\'第五十一条\',法条内容:\'
第五十一条 原告可以放弃或者变更诉讼请求。被告可以承认或者反驳诉讼请求，有权提起反诉。[ly]\'}]}]};if
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\"{\\\\\"Title\\\\\":\\\\\"原告中国建设银行股份有限公司南安支行（以下简称建行南安支行）与被告郭水福、杨艳琼、南安骏杰房地产开发有限公司（以下简称骏杰房地产公司）金融借款合同纠纷一审民事判决书\\\\\",\\\\\"PubDate\\\\\":\\\\\"2015-04-17\\\\\",\\\\\