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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