海南省海口市秀英区人民法院
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（2017）琼0105行初5号
原告蔡传至，男，汉族，1936年10月14日出生，住海口市。
委托代理人王法良，北京大成（海口）律师事务所律师。
被告海口市住房和城乡建设局，住所地海口市秀英区长滨路市政府第二办公区16号楼4楼。
法定代表人罗宗标局长。
委托代理人梁振华，海口市住房和城乡建设局工作人员。
委托代理人王梦瑶，海南方圆律师事务所律师。
被告海口市国土资源局，住所地海口市秀英区长滨路市政府第二行政区15栋北楼。
法定代表人韩艺师，局长。
委托代理人吴婷婷，海口市国土资源局工作人员。
委托代理人吴悦，海南天皓律师事务所律师。
原告蔡传至因被告海口市住房和城乡建设局（以下简称住建局）不履行法定职责，不退还房产证的行政不作为行为，于2017年1月3日向本院提起行政诉讼，本院于同日立案受理，并于2017年1月7日向被告住建局送达起诉书副本和应诉通知书。在审理过程中，由于机构改革，原房产登记事项并入新成立的不动产登记中心，该中心隶属海口市国土资源局（以下简称国土局）。为查明案件事实，本院依法追加国土局作为被告参加诉讼。本院原适用简易程序审理本案，后因案情复杂，本院依法裁定将案件转为普通程序审理。本院依法组成合议庭，于2017年6月6日公开开庭审理了本案，原告蔡传至、委托代理人王法良，被告住建局委托代理人梁振华、王梦瑶，被告国土局委托代理人吴婷婷、吴悦到庭参加诉讼。本案现已审理终结。
原告蔡传至诉称，原告1957年就读于湖南大学，毕业后分配到海南军区机关工作。1981年转业到海口市房管局任副局长5年多。当时因职工住房紧张，所以政府鼓励职工建私房，减轻政府的压力。次年原告从市建委买到滨海居住规划区一块地皮，盖好房屋主体工程后，市建设局（建委已取消）发给原告”海口市城市建设局建筑许可证(89)（城建管字第031号）”。原告持此证到房管局（现为市住建局）申办房产证。大约1个月左右，房管局就向原告颁发了房屋所有权证（房证字6022号）。1991年9月，原告持此房产证作抵押向某金融公司融资，谁知该公司私下将原告的房产证和贷款合同押存在房管局。后当他们去房管局要取回这些证件时，房管局不给办理退证，也不说明不办理退证的理由。
1995年7月19日，房管局给原告发来”通知函”，内容是说原告当年申办房产证时所持的建筑许可证在”面积”和”四至”上有私自涂改问题，按规定要吊销房产证，并背着原告将建筑许可证送去公安局作化验。且不经原告过目、不取得原告的签名同意、化验的鉴定报告也不给原告送达。这种行为侵犯了原告的知情权、复议权和私人财产保护权。原告在2008年给该局领导写信，过几天就收到该局寄来”海房函(2008)182号海口市房产局关于要求退还房屋所有权证书问题的复函”。全文内容不再谈建筑许可证有问题，但又节外生枝改为”贷款合同有效力问题，须经司法鉴定后才能取回房产证”。
现就所谓建筑许可证有私自涂改行为提出几点质疑：一、当年原告持建筑许可证去房产局申办房产证，是经过该局对该证严格审核完全符合规定，且到现场测绘制图，再给原告颁发房产证的。该证件则一直存放在房产局的保险柜中。至于该证有涂改迹象，与原告无关。二、在海房函(2008)182号复函内容中，只字不提建筑许可证的涂改问题，而是另行提出贷款合同问题。这就出现了两个问题：其一是自我否定”通知函”，承认通知函中所谓的有涂改行为是不存在的。其二是贷款合同问题，这是原告与金融公司双方的事，房产局属第三方，无权干预，强行吊销原告的房产证，属滥用职权违法行政。三、”通知函”中提出原告私自涂改建筑许可证并据此吊销了原告的房产证，这需要有人证物证。四、国家行政处罚法有明文规定：行政执法机关对当事人进行处罚，必须三公（公开、公正、公平），以礼服人，不得搞暗箱操作，不得超越职权行政。房管局有关人员以权谋私，搞一连串违法行政，置党纪国法于不顾。以上4点质疑，足以说明所谓建筑许可证的涂改行为，绝非原告所为。
房产证代表原告的不动产受国家保护，任何单位或个人都不得侵犯。房管局属行政执法机关，违法越权扣留原告的房产证达24年之久，严重侵害了原告的权益，对原告直接造成经济和精神上的严重伤害，必须依国家行政处罚法和有关法律合理给予赔偿损失。经济赔偿是这样估算的：原告用房产证作抵押贷款，当年能贷（借）到人民币80万元，作为海湖公司营业资本，按经营24年计算，至少能积累资金1000万元。由于房管局违法行政扣留吊销了原告的房产证，造成公司因经济和信誉受损而流产，致使原告事业无成，经济损失惨重，这个责任应由房管局负全责。按10%赔偿经济损失，则应赔偿100万元（含精神损失费）。因此，请求法院判令被告：1、退还原告的房产证；2、赔偿经济损失100万元（含精神损失费20万元）；3、向原告赔礼道歉。
本院认为，行政机关是否行政不作为，应以行政相对人是否书面向行政机关提出申请为前提；如果行政机关在收到行政相对人的书面申请，在法定期限内不处理或不答复即构成行政不作为。本案原告起诉两被告不履行法定职责，不退还房产证的行政不作为行为，应首先举证证明其曾向两被告书面提出过申请，而本案原告在提起本次诉讼之前并未将本案的诉讼请求事项向两被告书面提出申请，要求两被告履行职责。因此，本案原告并不具备原告的诉讼主体资格。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》第四十四条第（二）项之规定，裁定如下：
驳回原告蔡传至的起诉。
本案不收取诉讼费，原收取的诉讼费人民币50元退还原告蔡传至。
如不服本裁定，可以在裁定书送达之日起十日内，向本院递交上诉状，并按对方当事人的人数或者代表人的人数提出副本，上诉于海口市中级人民法院。
审判长李会勤
人民陪审员黄清霞
人民陪审员黄亦强
书记员战洋洋
二〇一七年六月八日
书记员战洋洋
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