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({\"法院ID\":\"2493\",\"案件基本情况段原文\":\"\",\"附加原文\":\"\",\"审判程序\":\"刑罚变更\",\"案号\":\"（2015）成刑执字第2079号\",\"不公开理由\":null,\"法院地市\":\"成都市\",\"法院省份\":\"四川\",\"文本首部段落原文\":\"\",\"法院区域\":\"\",\"文书ID\":\"c3676087-0f70-49c7-83e9-854b1463514a\",\"案件名称\":\"古华刚盗窃罪刑事裁定书\",\"法院名称\":\"四川省成都市中级人民法院\",\"裁判要旨段原文\":\"\",\"法院区县\":\"\",\"补正文书\":\"2\",\"DocContent\":\"\",\"文书全文类型\":null,\"诉讼记录段原文\":\"四川省雅安市雨城区人民法院于2008年11月5日作出（2008）雨城刑初字第146号刑事判决，以被告人古华刚犯盗窃罪，判处有期徒刑10年6个月，并处罚金5000元；犯掩饰、隐瞒犯罪所得罪，判处有期徒刑6个月，并处罚金3000元。决定合并执行有期徒刑10年8个月，并处罚金8000元。刑期自2008年6月21日起至2019年2月20日止。判决生效后于2008年11月24日交付执行。在刑罚执行过程中，于2010年11月20日经成都市中级人民法院作出（2010）成刑执字第5530号刑事裁定，对其减去有期徒刑1年，于2013年3月16日经成都市中级人民法院作出（2013）成刑执字第1784号刑事裁定，对其减去有期徒刑1年5个月。减刑后刑期止于2016年9月20日。执行机关四川省邛崃监狱提出减刑建议，报送本院审理。本院依法组成合议庭进行审理并进行裁前公示。本案现已审理终结\",\"判决结果段原文\":\"\",\"文本尾部原文\":\"\",\"上传日期\":\"\\\/Date(1449799113000)\\\/\",\"案件类型\":\"1\",\"诉讼参与人信息部分原文\":\"\",\"文书类型\":null,\"裁判日期\":null,\"结案方式\":null,\"效力层级\":null});$(document).attr(\"title\",\"古华刚盗窃罪刑事裁定书\");$(\"#tdSource\").html(\"古华刚盗窃罪刑事裁定书
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[{法规名称:\'《中华人民共和国刑法》\',Items:[{法条名称:\'第七十八条第一款\',法条内容:\' 第七十八条
被判处管制、拘役、有期徒刑、无期徒刑的犯罪分子，在执行期间，如果认真遵守监规，接受教育改造，确有悔改表现的，或者有立功表现的，可以减刑；有下列重大立功表现之一的，应当减刑：
（一）阻止他人重大犯罪活动的；
（二）检举监狱内外重大犯罪活动，经查证属实的；
（三）有发明创造或者重大技术革新的；
（四）在日常生产、生活中舍己救人的；
（五）在抗御自然灾害或者排除重大事故中，有突出表现的；
（六）对国家和社会有其他重大贡献的。
减刑以后实际执行的刑期不能少于下列期限：
（一）判处管制、拘役、有期徒刑的，不能少于原判刑期的二分之一；
（二）判处无期徒刑的，不能少于十三年；
（三）人民法院依照本法第五十条第二款规定限制减刑的死刑缓期执行的犯罪分子，缓期执行期满后依法减为无期徒刑的，不能少于二十五年，缓期执行期满后依法减为二十五年有期徒刑的，不能少于二十年。
\'},{法条名称:\'第七十八条第一款\',法条内容:\'
第七十八条
被判处管制、拘役、有期徒刑、无期徒刑的犯罪分子，在执行期间，如果认真遵守监规，接受教育改造，确有悔改表现的，或者有立功表现的，可以减刑；有下列重大立功表现之一的，应当减刑：
（一）阻止他人重大犯罪活动的；
（二）检举监狱内外重大犯罪活动，经查证属实的；
（三）有发明创造或者重大技术革新的；
（四）在日常生产、生活中舍己救人的；
（五）在抗御自然灾害或者排除重大事故中，有突出表现的；
（六）对国家和社会有其他重大贡献的。
减刑以后实际执行的刑期，判处管制、拘役、有期徒刑的，不能少于原判刑期的二分之一；判处无期徒刑的，不能少于十年。
\'},{法条名称:\'第七十九条\',法条内容:\'
第七十九条
对于犯罪分子的减刑，由执行机关向中级以上人民法院提出减刑建议书。人民法院应当组成合议庭进行审理，对确有悔改或者立功事实的，裁定予以减刑。非经法定程序不得减刑。
\'}]},{法规名称:\'《中华人民共和国监狱法》\',Items:[{法条名称:\'第二十九条\',法条内容:\'
第二十九条 被判处无期徒刑、有期徒刑的罪犯，在服刑期间确有悔改或者立功表现的，根据监狱考核的结果，可以减刑。有下列重大立功表现之一的，应当减刑：
（一）阻止他人重大犯罪活动的；
（二）检举监狱内外重大犯罪活动，经查证属实的；
（三）有发明创造或者重大技术革新的；
（四）在日常生产、生活中舍己救人的；
（五）在抗御自然灾害或者排除重大事故中，有突出表现的；
（六）对国家和社会有其他重大贡献的。
\'},{法条名称:\'第三十条\',法条内容:\' 第三十条
减刑建议由监狱向人民法院提出，人民法院应当自收到减刑建议书之日起一个月内予以审核裁定；案情复杂或者情况特殊的，可以延长一个月。减刑裁定的副本应当抄送人民检察院。
\'}]},{法规名称:\'《中华人民共和国刑事诉讼法（2012年）》\',Items:[{法条名称:\'第二百六十二条第一款\',法条内容:\'
第二百六十二条罪犯在服刑期间又犯罪的，或者发现了判决的时候所没有发现的罪行，由执行机关移送人民检察院处理。
被判处管制、拘役、有期徒刑或者无期徒刑的罪犯，在执行期间确有悔改或者立功表现，应当依法予以减刑、假释的时候，由执行机关提出建议书，报请人民法院审核裁定，并将建议书副本抄送人民检察院。人民检察院可以向人民法院提出书面意见。
\'}]},{法规名称:\'《最高人民法院关于办理减刑、假释案件具体应用法律若干问题的规定》\',Items:[{法条名称:\'第二条第一款\',法条内容:\'
第二条“确有悔改表现”是指同时具备以下四个方面情形：认罪悔罪；认真遵守法律法规及监规，接受教育改造；积极参加思想、文化、职业技术教育；积极参加劳动，努力完成劳动任务。
对罪犯在刑罚执行期间提出申诉的，要依法保护其申诉权利，对罪犯申诉不应不加分析地认为是不认罪悔罪。
罪犯积极执行财产刑和履行附带民事赔偿义务的，可视为有认罪悔罪表现，在减刑、假释时可以从宽掌握；确有执行、履行能力而不执行、不履行的，在减刑、假释时应当从严掌握。
\'}]},{法规名称:\'《最高人民法院关于办理减刑假释案件具体应用法律若干问题的规定》\',Items:[{法条名称:\'\',法条内容:\'
2、什么是确有立功表现有下列情形之一的，应当认为是确有立功表现，即：揭发、检举监内外犯罪分子的犯罪活动，经查证属实的；制止他犯逃跑、行凶、破坏等犯罪活动的；在生产、科研中有重大发明创造、技术革新的；在日常生产、生活中舍己救人的；在抢险救灾中有突出表现的；有其他有利于国家和人民利益的突出事迹的。
对被劳改单位评为省级劳改积极分子的罪犯，可视为有立功表现。
二、关于死缓犯的减刑以及减刑后能否假释的问题
死缓犯的减刑，是一种法定的特殊形式的减刑，它与刑法第七十一条规定的减刑不同。
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