**海口市秀英区人民法院稿纸**
**签发：**
**核稿：**
**主办单位和拟稿人：**
行政庭、李会勤
**事由：行政判决书** ****
****
**附件：** ****打印 7份
**主送：**
**抄送：**
海南省海口市秀英区人民法院
**** **行政判决书**
（2017）琼0105行初143号
原告潘兴佳，男，汉族，1962年11月11日出生，住海口市龙华区世贸东路世贸中心E栋1101室。
委托代理人何远春、赵征，海南坤和律师事务所律师
被告海口市秀英区城市管理行政执法局，住所地海口市秀英区向荣路福秀小区第二办公区。
法人代表戴洪泽，局长。
委托代理人林椰韵，海口市秀英区城市管理行政执法局工作人员。
委托代理人董鹏，海南维特律师事务所律师。
原告潘兴佳因不服被告海口市秀英区城市管理行政执法局（以下简称城管局）于2017年7月25日强制拆除原告位于海口市××路东侧地块上编号为SJD-18号房屋的行政行为，于2017年9月30日向本院提起行政诉讼，本院于2017年10月9日立案受理，并于2017年10月16日向被告送达起诉书副本和应诉通知书。本院适用简易程序，于2017年11月7日公开开庭审理了本案，原告委托代理人何远春，被告委托代理人林椰韵、董鹏到庭参加诉讼。本案现已审理终结。
被告城管局于2017年7月25日依据其作出的海管法罚字X2（2017）第0161号《行政处罚决定书》以及海管法执字X2（2017）第0038号《强制执行决定书》，将原告位于海口市长滨路式金村东侧地块上编号为SJD-18号，建筑面积为370平方米的一栋两层半框架结构房屋予以强制拆除。被告于2017年10月25日向本院提交答辩状，并提供其作出具体行政行为的证据：1、《海口市城市管理行政执法案件调查终结报告》及附件，2、海管法罚告字X2（2017）第0161号《行政处罚事先告知书》及张贴照片，3、《留置送达回证》，4、海管法罚字X2（2017）第0161号《行政处罚决定书》及张贴照片，5、《留置送达回证》；证据1-5共同证明被告作出的行政处罚决定认定事实清楚、适用法律正确且符合法定程序。6、海管法罚催字X2（2017）第0073号《催告执行通知书》及张贴照片，7、《留置送达回证》，8、海管法执字X2（2017）第0038号《强制执行决定书》、《公告》、《强制拆除违法建筑公告》及张贴照片，9、《留置送达回证》；证据6-9共同证明被告作出的强制执行决定认定事实清楚、适用法律正确且符合法定程序。
原告潘兴佳诉称，2006年，为响应政府文明生态富民政策和国家养生养老政策，利用闲置农村集体土地，帮助村民就业，增加村民收入，原告与海口市秀英区长滨路式金村民小组签到合作协议，创办养老院，并与全国老龄委信息中心合作，联合打造“农村生态智能化养老实验基地”样板模式试点。2012年全国老龄工作委员会正式批复同意在我省建立“农村智能化养老基地”。但因海口市规划局对该区域没有规划不受理报建审批申请，为此，原告采取边经营边报建报批的方式先开展业务活动。
2017年4月11日，被告以原告违反《城乡规划法》第64条为由，向原告作出海管法罚字X2（2017）第0161号《行政处罚决定书》，责令原告接到决定书之日起1日内自行拆除编号为SJD-18的违法建筑，并告知原告如对该处罚决定不服，可以在收到决定书之日起60日内向秀英区政府或海口市城市管理行政执法局申请复议；也可以在收到决定书之日起6个月内依法直接向海口市秀英区法院提起诉讼。2017年4月17日，被告再次作出海管法执字X2（2017）第0038号《强制执行决定书》，告知原告决定对SJD-18违法建筑进行强制拆除，同时告知原告如对该执行决定不服，可以在收到执行决定书之日起60日内向海口市城市管理行政执法局或秀英区政府申请行政复议；也可以在收到强制决定书之日起6个月内依法直接向海口市秀英区法院提起诉讼。2017年7月25日，被告对SJD-18建筑物进行强制拆除。
原告认为，根据我国《行政强制法》第2条和第44条的规定，当事人在法定期限内不申请行政复议或者提起行政诉讼，又不自拆除的，行政机关或行政机关申请人民法院可以依法强制拆除。但是在本案中，被告2017年4月17日作出的《强制执行决定书》已经明确告知原告依法享有60天的行政复议权和6个月的行政起诉权，但在原告起诉期限未满，也没有申请人民法院的情形下，被告即自行对SJD-18建筑物进行强制拆除，其行为已经违反了我国《行政强制法》的规定，明显程序违法。
综上，原告认为被告的强制拆除行为没有法律依据，程序违法，适用法律错误，违反了相关法律规定，极大的侵犯了原告的合法权益。为此，原告根据我国《行政诉讼法》等相关规定，特向法院提起诉讼，请求法院依法确认被告强制拆除原告SJD-18建筑物的行政行为违法并承担本案诉讼费用。
原告向本院提交了以下证据：1、海管法罚催字X2（2017）第0073号《催告执行通知书》，2、海管法执字X2（2017）第0038号《强制执行决定书》，3、2017年《海口日报》强制拆除违法建筑公告照片1张，4、强拆现场照片5张；以上证据共同证明被告在明确告知原告享有60天的行政复议权和6个月的行政诉讼权的情形下，自行于2017年7月25日进行强制拆除SJD-18建筑物的行为明显程序违法的事实，也证明了原告具有本案的诉讼主体资格。
被告城管局辩称，一、原告并非本案适格原告，不符合起诉条件，应依法驳回其起诉。原告并非海口市秀英区长滨路式金村村民，且无法证明其是涉案违法建筑（编号SJD-18）的权利人，故其不是本案的适格原告。所以，原告提起的行政诉讼不符合《中华人民共和国行政诉讼法》第四十九条之规定。依据《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》第三条之规定，应当依法驳回原告的起诉。
二、即将原告是本案适格原告，被告作出的强制拆除行为也符合法律规定且程序正当。
（一）被告作出的行政处罚决定认定事实清楚，适用法律正确，程序合法。
1、2017年3月26日，被告接到群众举报并经图斑核查后发现，原告在××路两层半框架结构建筑物（编号SJD-18）。该建筑物占地面积为136.4平方米，建筑面积为370平方米（经工作人员现场测量规格为：长12.4米，宽11米）。之后，被告依法下达《案件初查通知书》，要求原告向被告提供涉案建筑合法报建手续，但原告始终未能提供前述合法报建手续。
2、经核实，该涉案建筑物约于2012年动工建设，现已建成。但原告在建造该涉案建筑物前后均未依法申请办理工程规划许可证，违反了《中华人民共和国城乡规划法》第四十四条之规定，应当被认定为违法建筑。同时，根据《关于规范城乡规划行政处罚裁量权的指导意见》第四条之规定，该涉案建筑物并不属于可以采取改正措施消除对规划实施影响的情形，依据《中华人民共和国城乡规划法》第六十四条之规定，依法应责令拆除。
3、鉴于原告的上述违法行为，被告于2017年4月5日依法作出海管法罚告字X2（2017）第0161号《行政处罚事先告知书》，告知拟作出行政处罚的内容、理由、依据及原告依法享有陈述和申辩的权利，但原告在法定期限内未向被告提出陈述或申辩意见。被告遂于2017年4月11日依法作出海管法罚字X2（2017）第0161号《行政处罚事决定书》并依法送达。
（二）被告作出的强制执行决定符合法律规定且其程序正当。由于原告在法定期限内拒不履行前述《行政处罚事决定书》规定之义务，于是被告依法作出海管法罚催字X2（2017）第0073号《催告执行通知书》、海管法执字X2（2017）第0038号《强制执行决定书》，并均依法向原告送达。
综上所述，被告强制拆除涉案违法建筑（现场编号SJD-18）的行政行为认定事实清楚、适用法律正确且程序正当，请求法院依法驳回原告的诉讼请求。
经审理查明，本案涉案建筑物位于海口市××区东侧，为一栋两层半框架结构房屋（现场编号为SJD-18），建筑面积为370平方米，为原告在式金村集体土地上约于2012年建成使用。由于原告在修建涉案建筑物时未经行政审批许可，被告根据群众举报，并经调查核实，于2017年4月11日向原告作出海管法罚字X2（2017）第0161号《行政处罚决定书》，限期原告自行拆除，逾期将依法强制拆除。该决定书在现场张贴留置送达。2017年4月13日，被告向原告作出海管法罚催字X2（2017）第0073号《催告执行通知书》，并在现场张贴留置送达。2017年4月17日，被告向原告作出海管法执字X2（2017）第0038号《强制执行决定书》，决定对涉案建筑依法强制拆除。该决定书同样在现场张贴留置送达。2017年4月20日，被告在《海口日报》上发布公告，重申将在2017年4月25日对包括涉案建筑在内的违法建筑进行强制拆除。2017年7月25日，被告组织人员将原告的涉案建筑进行了强制拆除。原告不服，遂向本院提起行政诉讼。
上述事实，有原告提交的海管法罚催字X2（2017）第0073号《催告执行通知书》，海管法执字X2（2017）第0038号《强制执行决定书》，2017年《海口日报》强制拆除违法建筑公告照片1张，强拆现场照片5张；被告提交的《案件调查终结报告》及附件，海管法罚告字X2（2017）第0161号《行政处罚事先告知书》及张贴照片，海管法罚字X2（2017）第0161号《行政处罚决定书》及张贴照片，《留置送达回证》以及庭审质证笔录，足以认定。
本院认为，本案当事人争议的焦点是被告城管局强制拆除原告潘兴佳一栋两层半框架结构房屋的行政行为是否合法。经庭审质证后确认，本案原告未经政府相关部门审批许可，擅自在式金村集体土地上修建涉案建筑，该地段属海口市主城区范围内，其行为违反我国城乡规划法的相关规定，应认定为违法建筑，依法应予以拆除。被告作为本辖区内负责对违反城乡规划进行查处的城市管理行政机关，有权对原告的违法行为进行查处。被告在查明原告违法事实的基础上，对原告作出行政处罚，限期原告自行拆除，其行为并无不当。但被告在处罚决定尚未生效的情况下，就向原告作出强制执行决定书，并对涉案建筑实施强制拆除，其行为违反我国行政强制法的规定，程序不合法，依法应予纠正。由于被告已对原告的涉案建筑实施了强制拆除，原告要求确认被告强制拆除的行政行为违法于法有据，本院予以支持。对被告提出的原告诉讼主体资格问题，被告并未提供涉案建筑另属他人所有的证据加以证明，因此，对该理由本院不予采纳。综上，依照《中华人民共和国行政诉讼法》第七十四条第二款第（一）项之规定，判决如下：
确认被告海口市秀英区城市管理行政执法局于2017年7月25日强制拆除原告潘兴佳建筑面积为370平方米一栋两层半框架结构房屋（现场编号为SJD-18）的行政行为违法。
本案诉讼费人民币50元，由被告海口市秀英区城市管理行政执法局承担。
如不服本判决，可以在判决书送达之日起十五日内，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。
wbusy1wz6mt0yiluxn案件唯一码
审判员李会勤
二0一七年十一月八日
书记员战洋洋
附相关法律条文
《中华人民共和国行政诉讼法》第七十四条第二款
行政行为有下列情形之一，不需要撤销或者判决履行的，人民法院判决确认违法：
（一）行政行为违法，但不具有可撤销内容的。
审核：李会勤撰稿：李会勤校对：战洋洋
印刷：李彬彬
海口市秀英区人民法院
2017年11月9日印制
（共印7份）
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