海南省第二中级人民法院
p t ; ” > 行 政 裁 定 书
(2017)琼97行审60号
海南省第二中级人民法院
行政裁定书
（2017）琼97行审60号
申请执行人昌江黎族自治县林业局，住所地海南省昌江黎族自治县石碌镇东风路52号1栋。
法定代表人关瑜，昌江黎族自治县林业局局长。
委托代理人陶秀英，昌江黎族自治县林业局工作人员。
委托代理人黄恒森，昌江黎族自治县石碌法律事务所法律工作者。
被执行人海南希望棋子湾旅游开发有限公司，住所地海南省昌江黎族自治县人民北路汽车站大院。
法定代表人周颖，该公司董事长。
委托代理人蒋贵，男，汉族，1971年10月20日出生，海南希望棋子湾旅游开发有限公司员工。
委托代理人傅乾文，男，汉族，1982年10月25日出生，海南希望棋子湾旅游开发有限公司员工。
申请执行人昌江黎族自治县林业局（以下简称昌江县林业局）于2017年4月5日向昌江黎族自治县人民法院申请强制执行昌林罚书字[2016]第36号行政处罚决定。昌江黎族自治县人民法院于2017年5月10日将该案移送本院管辖，本院于同年5月11日立案受理后依法组成合议庭,对本案进行了公开听证，本案现已审查终结。
申请执行人昌江县林业局称：被执行人海南希望棋子湾旅游开发有限公司（以下简称希望棋子湾公司）未经林业主管部门审核同意，在未办理征占用林地手续的情况下，在昌江县昌化镇白沙岭北面的林地里修建临时指挥部等设施的行为违反了《海南经济特区林地管理条例》第二十一条第二款的规定为由，依据《海南经济特区林地管理条例》第三十八条第一款，于2016年7月15日作出昌林罚书字[2016]第36号《林业行政处罚决定书》,责令希望棋子湾公司在2016年9月1日前恢复林地原状,并处非法改变用途林地罚款273906元。如果到期不缴纳罚款，每日按罚款数额的百分之三加处罚款。2017年1月23日，昌江县林业局作出昌林罚催字[2017]1号《催告书》，限希望棋子湾公司十日内履行昌林罚书字[2016]第36号处罚决定，并依据《中华人民共和国行政处罚法》第五十一条第一款的规定，每日按罚款数额的百分之三加处罚款，计人民币273906元。因希望棋子湾公司在法定期限内未申请行政复议，未提起行政诉讼，也未履行行政处罚决定，经催告仍未履行义务。昌江县林业局故向人民法院申请强制执行。申请执行事项：1.强制拆除海南希望棋子湾旅游开发有限公司擅自改变用途林地上所建的临时指挥部等设施并恢复林地原状；2.擅自改变林地用途罚款人民币273906元；3.逾期不缴纳罚款，每日按罚款数额的百分之三加处罚款273906元。
被申请人辩称，一、昌江林业局认定违法事实缺乏基本证据支持。昌江林业局未经查档，未报昌江县人民政府乃至海南省人民政府批准的情况下，仅凭单方制作的《关于昌化镇希望公司用地建临时板房的现场调查情况》判定涉案地块为林地与事实不符，并且调查技术人员杨彦和李海均为助理工程师，资格证件颁发时间已超过十年，不具备独立作出林业技术调查资格，形成的结论意见没有合法性。李海仅是挂名，并未参与实质调查，该二人均未在相关文件签名或盖章，程序不合法，该《现场调查情况》不能作为证明行政行为合法的依据。异议人对涉案土地性质并不知情，也未擅自占用林地或改变林地用途，并不存在行政违法事实。异议人对土地的利用是基于与昌化镇昌农村委会签定的《临时用地协议》，也按昌江县林业局的要求就《棋子湾D-7地块生态停车场项目》使用林地可行性报告编制并出具合法、有效的可行性报告并于2016年8月向昌江县林业局邮寄。昌江县林业局拒不履行行政许可审批行政行为，客观造成异议人违法使用林地的事实，异议人无违法主观故意。二、昌江县林业局适用法律错误。1.昌江县林业局的行政处罚违反”上位法优先”、”有利于相对人”的基本法律适用原则，《中华人民共和国森林法实施条例》第四十三条第一款规定：”擅自改变用途的，处非法改变用途林地每平方米10元至30元的罚款”，而《海南经济特区林地管理条例》第三十八条第一款规定：”擅自改变林地用途的，对单位处每平方米50元以上150元以下罚款”根据《中华人民共和国行政处罚法》第十一条第二款规定：”法律、行政法规对违法行为已经作出行政处罚规定，地方性法规需要作出具体规定的，必须在法律、行政法规规定的行政处罚行为、种类和幅度范围内规定”昌江林业局处罚决定书缓引《海南经济特区林地管理条例》的相关规定，在执行申请书又缓引《中华人民共和国森林法实施条例》的规定，应视为其应依照上位法《中华人民共和国森林法实施条例》处理，可视为林业处罚决定书归于无效。2.林业行政处罚决定书要求异议人收到决定书之日起十五日内到昌江林业局办理缴纳罚款，违反《中华人民共和国行政处罚法》第四十六条规定，明显违法罚款缴纳程序规定，应属无效。3.恢复原状、加处罚款或滞纳金是行政强制执行方式，并非行政处罚种类，不同性质的行政行为在同一法律文书混用无效，昌江县林业局行政处罚决定书第一项为：限于2016年9月1日前恢复林地原状，实为行政行为程序违法，应无效。4.2015年7月13日，昌江林业局就”建临时板房”作出立即停止违法行为，恢复林地原状的《责令停止违法行为通知书》，但此后并未申请强制执行，又因同一事件于2016年7月15日再次作出《林业行政处罚决定书》责令异议人恢复林地原状，属于混用法律关系，一事再罚，应归于无效。三、昌江林业局对异议人的处罚金额及处罚滞纳金罚款的行为，违反《行政处罚法》第四条行政处罚遵循公正、公开的原则及第二款的规定。异议人临时占地是先前其他单位已使用过的用地，异议人并不知需办理临时占用国有土地或林地许可，国土或申请人对该地块相关管理规划信息公开不明；在申请人对林地的管理过程中，异议人依法向申请人提出临时用地申请许可，反映异议人的行为并非主观恶意违法，申请人未作出是否许可的行为存在一定不作为的过错；异议人占用的是土地现状为弃土场，无林业资源的用地且与属地集体组织协商，未实际侵害或造成国家、集体或个人损失损害。申请人按每平方米70元属从重处罚，与损害结果不相当，加倍处罚滞纳金更缺乏行政处罚的合理性。依据《行政处罚法》第二十七条第二款规定，申请人处罚行为应撤销或变更。综上，请求人民法院裁定不准予执行。
本院认为，2016年4月21日，昌江林业局派技术员杨彦、李海对涉案被占用林地进行现场调查，该二人均系海南省林业高级职务任职条件评审委员会授予的助理工程师，依据《国家林业局关于在查处盗伐、滥伐林木案件中测算立木蓄积有关问题的复函》《海南省森林资源规划设计调查操作细则》《海南省林业调查数表》调查认定涉案地块属规划林地，硬化建临时板房面积5.87亩并制作现场测定位置图及现场调查情况，程序合法，所形成的调查结论合法。昌江林业局并提交了涉案地块的现场勘验、检查笔录及刘兴友、黄源等人的询问笔录等证据，证实希望棋子湾公司未经林业主管部门审核同意，在未办理征占用林地手续的情况下，在昌江黎族自治县白沙岭背面擅自改变林地用途修建临时指挥部等设施，硬化面积达5.87亩的事实清楚，证据确实充分。根据《中华人民共和国立法法》第八十一条第二款：”经济特区法规根据授权对法律、行政法规、地方性法规作变通规定的，在本经济特区适用经济特区法规的规定。”《海南经济特区林地管理条例》第二条：”本经济特区行政区域内林地的保护、管理和开发利用，适用本条例”的规定，昌江林业局适用海南经济特区法规规定进行处罚并无不当。根据《中华人民共和国行政处罚法》第二十三条：”行政机关实施行政处罚时，应当责令当事人改造或限期改正违法行为”第三十八条：”未经县级以上人民政府林业主管部门审核审批，非法占用林地、擅自改变林地用途或者在林地上进行采石、采砂、挖砂、取土、挖塘及其他破坏林地的活动，由县级以上人民政府林业主管部门责令限期恢复原状；按照非法改变用途林地面积，对个人处每平方米五元以上三十一以下的罚款，对单位处每平方米五十元以上一百五十元以下的罚款”的规定，昌江林业局对希望棋子湾实施行政处罚时，责令其限期改正违法行为，适用法律正确。故，昌江林业局以希望棋子湾的行为违反了《海南经济特区林地管理条例》第二十一条第二款的规定，依据《海南经济特区林地管理条例》第三十八条作出昌林罚书字[2016]第36号行政处罚决定,责令希望棋子湾公司在2016年9月1日前恢复林地原状,并处非法改变用途林地罚款273906元，认定事实清楚，适用法律正确，程序合法，处罚适当，希望棋子湾公司在法定期限内未申请行政复议，未提起行政诉讼，也未履行行政处罚决定，经催告仍未履行义务,依法应准予强制执行。关于申请执行事项的第三项，即”加处罚款”的处罚内容。根据《中华人民共和国行政强制法》第四十六条的规定，行政机关实施加处罚款超过三十日后，经催告当事人仍不履行的，没有行政强制执行权的行政机关才可以申请人民法院强制执行。本案中，昌江县林业局实施加处罚款的时间是2017年1月23日，之后未再进行催告，于2017年4月5日向法院申请强制执行，违反了《中华人民共和国行政强制法》第四十六条的规定且侵犯了相对人的合法权益，对该项请求本院不予准许。
综上所述，昌江县林业局申请强制拆除希望棋子湾公司擅自改变用途林地上所建的临时指挥部等设施并恢复林地原状并处罚款人民币273906元的处罚决定，本院予以准许。关于”强制拆除海南希望棋子湾旅游开发有限公司擅自改变用途林地上所建的临时指挥部等设施并恢复林地原状”的执行问题，实行裁执分离便于法院和行政机关发挥各自优势，有利于案件的公正执行，故该部分的执行可参照《最高人民法院关于办理申请人民法院强制执行国有土地上房屋征收补偿决定案件若干问题的规定》第九条的规定，由昌江县林业局组织实施。对希望棋子湾公司逾期不缴纳罚款加处罚款273906元的处罚决定，因明显违法且侵犯相对人的合法权益，本院不予准许。依照《中华人民共和国行政强制法》第四十六条、第五十三条以及《中华人民共和国行政诉讼法》第九十七条、《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》第九十五条，参照《最高人民法院关于办理申请人民法院强制执行国有土地上房屋征收补偿决定案件若干问题的规定》第九条之规定，裁定如下：
一、准予强制执行海南希望棋子湾旅游开发有限公司擅自改变林地用途罚款人民币273906元；
二、准予强制拆除海南希望棋子湾旅游开发有限公司擅自改变用途林地上所建的临时指挥部等设施并恢复林地原状，由昌江黎族自治县林业局组织实施；
三、不准予强制执行海南希望棋子湾旅游开发有限公司因逾期不缴纳罚款加处罚款273906元。
申请执行人如不服本裁定，可以在收到裁定书之日起十五日内，通过本院向海南省高级人民法院申请复议，也可以直接向海南省高级人民法院申请复议。
审判长羊茂明
审判员赖永驰
审判员梁晶晶
二○一七年七月十日
法官助理刘伟甲
书记员赵密密
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