海南省海口市琼山区人民法院
p t ; ” > 行 政 判 决 书
（2016）琼0107行初19号
原告：庄瑞玉，女，1983年7月13日出生，汉族，原系海口市琼山区环卫局职工,现在无业。住海口市。
被告：海口市公安局琼山分局，住所地海口市琼山区凤翔东路340号。
法定代表人：高晓斌，局长。
委托诉讼代理人：卢建平，男，海口市公安局琼山分局法制科科长。
委托诉讼代理人：林俊，男，海口市公安局琼山分局法制科科员。
原告庄瑞玉不服被告海口市公安局琼山分局（以下简称琼山分局）治安行政处罚一案，于2016年7月22日向本院提起行政诉讼。本院于2016年7月25日立案后，于2016年8月2日向被告送达了起诉状副本及应诉通知书。本院依法组成合议庭，于2016年9月12日公开开庭审理了本案。原告庄瑞玉，被告琼山分局委托诉讼代理人卢建平、林俊到庭参加诉讼。本案现已审理终结。
被告琼山分局于2016年3月16日作出海公琼分（治安）行罚决字【2016】0545号《行政处罚决定书》，该决定书认定的主要事实、定性依据和处理结果为：”现查明2016年3月14日至2016年3月15日，庄瑞玉煽动、策划环卫工人约120余人到海口市琼山区委及省政府非法集会，经审讯，庄瑞玉对其煽动、策划非法集会的事实供认不讳。以上事实有吴冬霄、谢是香的询问笔录、到案经过及现场相片等证据证实。根据《中华人民共和国治安管理处罚法》第五十五条之规定，现决定行政拘留十五日。执行方式和期限：送海口市拘留所执行（2016年3月16日至2016年6月31日）”。
原告庄瑞玉诉称，一、被告作出的处罚决定，认定事实不清，适用法律错误。原告原是琼山区环卫局的职工，2015年11月3日区政府将环卫工人转交给海口市京环城市环境服务有限公司（以下简称京环公司）经营管理。京环公司接管后，随意克扣加班费、工作岗位拉长等手段逼迫老职工辞职，以达到新招员工免缴社保的目的。老职工多次向京环公司提出抗议，并强烈要求公司停止不合理的加班，补发拖欠的工作和加班费。2016年3月1日，京环公司开除了今年1月1日招收的试用工160名，导致员工第一次自发到区政府上访的事实。3月10日至13日，老职工通过微信作业群向京环公司领导层反映，工资待遇与公司承诺不符、不发三八节加班费等问题，公司不予理睬，导致3月14日约400名员工自发到区政府上访维权事件的发生。原告不是班组领导，平时在岗位上单独作业，根本不认识其他人，只是其中的上访者之一而已。《治安处罚法》第五十五条”煽动、策划非法集会、游行、示威，不听劝阻的，处十日以上十五日以下拘留”。本条款是新增加的违反治安管理行为。是指行为人一般是为了实现某种非法的目的，如向政府施加压力、制造社会混乱等等。法律还明确规定，在适用本条规定时，要注意处罚的对象是煽动、策划非法集会、游行、示威的组织者或者发起人。对于一般的参加者，不应处罚。因此，被告未严格依照法律就认定原告煽动、策划非法集会、游行、示威，纯属无中生有、强词夺理，属于认定事实不清，适用法律错误。因为原告的行为无论从事实和后果上，均不构成违法。原告既没有煽动，也没有策划非法集会，更没有游行示威，公安机关对原告予以治安拘留”项格重处”拘留15天。由此可见，被告视法律为儿戏，对公民的人身自由多么不负责任。他们公权在握，以权压人、乱用法律，欲加之罪何患无词。二、被告作出的行政行为，属于滥用职权，程序违法。《治安处罚法》规定，对违反治安管理人的处罚应适用调查、决定、执行这三项必不可少的程序。第三十八条规定，公安机关调查终结，行政机关负责人应对调查结果进行审查，根据不同情况分别作出不同决定。第三十九条规定，行政机关决定给予行政处罚的，应制作行政处罚决定书。第四十条规定，行政处罚决定书应当宣布后当场交付当事人。但是被告在对原告决定拘留前，从未与原告接触，只听京环公司一方言词，偏听偏信，就直接给原告戴上手铐、脚链，将原告从家里带到琼山刑警大队，未经过询问就进行讯问，之后就执行拘留15天。尤为荒唐的是至今原告尚未收到《行政处罚决定书》。被告的行政处罚是严重违反法定程序的行为。其程序违法，实体必然也是不合法的。其实，京环公司借公安机关的名义进行报复，公安机关成了京环公司压抑民意、报复他人的工具。违反治安管理的行为应具备社会危害性、行政违法性和具有应受处罚性的三个基本特征。原告的行为不具备社会危害性，也不具备行政违法性，更不具备应受处罚性。公民的人身自由是人身权的重要组成部分，是《宪法》规定的公民基本权利，任何人不得非法剥夺和限制人身自由。一个没有违法的公民被公安机关处以行政拘留15天，实属枉法裁决，属于滥用职权、滥用警械行为。综上所述，被告作出的处罚决定，认定事实错误，程序违法，适用法律错误，极大损害了原告的合法权益，为此，原告特向法院起诉，请求依法请求被告琼山分局作出的海公琼分（治安）行罚决字【2016】0545号《行政处罚决定书》。
原告为支持其诉讼主张，在起诉时向本院提交如下证据：海拘解字[2016]第1457号《解除拘留证明书》，证明2016年3月31日拘留期限届满，被告释放原告的事实。
被告琼山分局辩称，2016年3月14日至3月15日，吴冬霄、谢是香、庄瑞玉、郑金玲煽动、策划环卫工人约120余人到海口市琼山区委、区政府及海南省政府门口非法集会，不听劝阻，严重扰乱社会管理秩序。以上事实有吴冬霄、谢是香、庄瑞玉、郑金玲等人询问笔录、微信聊天记录、现场照片、情况说明等证据证明。根据吴冬霄、谢是香、庄瑞玉、郑金玲的违法事实，琼山分局依法对其传唤，调查取证，履行处罚告知程序。依据《中华人民共和国治安管理处罚法》第五十五条的规定，琼山分局于2016年3月15日、16日对吴冬霄、谢是香、庄瑞玉分别作出行政拘留十五日的海公琼分（治安）处罚决字【2016】0543、0544、0545号《行政处罚决定书》，于2016年3月17日对郑金玲作出行政拘留十五日的海公琼分（治安）行罚决字【2016】0562号《行政处罚决定书》。以上《行政处罚决定书》已向当事人宣告并送达。综上所述，琼山分局对原告庄瑞玉作出的行政处罚决定，事实清楚，证据充分，程序合法，适用法律正确，行为适当。为维护良好的社会治安管理秩序，请求人民法院依法维持琼山分局对原告庄瑞玉作出的行政处罚决定。
被告琼山分局在举证期限内，向本院提交了证明其作出行政行为合法性的证据和依据如下：《治安管理处罚卷》，第一组证据[案卷目录的第2、3、4、5、6、7项]，证明案件办理严格遵守法定程序，适用法律正确。第二组证据[案卷目录的第8-16项，吴进娃、杨元莲、周海青、周莲芳、高荣芳、谢是香、庄瑞玉、吴冬霄、郑金玲等人的询问笔录及17-21项]，证明被告对原告作出的处罚决定，认定事实清楚，证据充分。第三组证据[案卷目录的22项]，证明原告已经向海口市公安局申请行政复议，海口市公安局维持了处罚决定。
经庭审质证，本院对各方当事人提交的证据作如下确认：
一、对被告琼山分局提交证据的确认。原告对被告提交的三组证据，除对询问笔录有异议外，对其他证据均无异议。认为被告制作的询问笔录是不真实的，原告在刑警大队拘押超过24小时，原告虽然参加非法集会，但不是组织者、煽动者、策划者。本院认为，以上证据可以证明原告通过”环卫职工沟通群”、”环卫讨论群”，号召环卫工人到区政府和省政府上访，讨回公道。还要求群内成员要团结一心，坚持到底。据此，可认定原告庄瑞玉煽动、策划环卫工人约120余人在琼山区政府和省政府进行非法集会的事实，对其证明效力予以确认。
二、对原告庄瑞玉提交证据的确认。被告对原告提交的证据的真实性、关联性、合法性均予认可，本院予以确认。
根据以上有效证据及当事人的质证意见认定以下事实：
经审理查明，2016年3月14日至3月15日，原告庄瑞玉等人煽动、策划环卫工人约120余人到海口市琼山区委、区政府及海南省政府门口非法集会，不听劝阻，严重扰乱社会管理秩序。被告琼山分局根据庄瑞玉的违法事实，依法对其进行了传唤，并依法调取证据，在履行处罚告知程序，原告庄瑞玉表示放弃申辩后。依据《中华人民共和国治安管理处罚法》第五十五条的规定，于2016年3月16日对庄瑞玉作出海公琼分（治安）处罚决字【2016】0545号《行政处罚决定书》，决定行政拘留十五日。该决定于2016年3月16日向原告庄瑞玉宣告并送达。原告不服该行政处罚决定，遂向本院提起本案诉讼。
本院认为，原告庄瑞玉等人煽动、策划环卫工人到海口市琼山区政府及省政府进行非法集会，不听劝阻，严重扰乱了社会管理秩序。被告琼山分局依据《中华人民共和国治安管理处罚法》第五十五条的规定，对其作出行政拘留十五日的行政处罚。其认定事实清楚，证据确凿充分，适用法律、法规正确，符合法定程序，处罚适当，应予支持。原告庄瑞玉主张其不是进行非法集会的煽动者、策划者，不应对其进行行政处罚无事实依据，本院不予采纳。原告庄瑞玉认为被告琼山分局对其作出的行政处罚决定，认定事实错误，程序违法，适用法律不当，其理由不能成立，本院不予支持。据此，依照《中华人民共和国行政诉讼法》第六十九条之规定，判决如下：
驳回原告庄瑞玉的诉讼请求。
案件受理费50元，由原告庄瑞玉负担。
如不服本判决，可在判决书送达之日起十五日内提出上诉，向本院递交上诉状，并按对方当事人的人数递交上诉状副本，上诉于海南省海口市中级人民法院。
审判长郭远英
审判员符策辉
审判员吴坤弼
二0一七年七月二十一日
书记员周衍
附：相关法律条文
《中华人民共和国行政诉讼法》
第六十九条行政行为证据确凿，适用法律、法规正确，符合法定程序的，或者原告申请被告履行法定职责或者给付义务理由不成立的，人民法院判决驳回原告的诉讼请求。
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