海南省三亚市中级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼02行终103号
上诉人（原审被告）三亚市住房和城乡建设局，住所地三亚市河东路182号。
法定代表人黎觉行，该局局长。
委托代理人王旗辉，该局工作人员。
被上诉人（原审原告）蔡阳，男，1965年4月6日出生，汉族，住三亚市。
上诉人三亚市住房和城乡建设局（以下简称三亚市住建局）因被上诉人蔡阳诉其物业管理备案登记纠纷一案，不服三亚市城郊人民法院（2017）琼0271行初177号行政判决，向本院提起上诉。本院依法组成合议庭，公开开庭审理了本案。
上诉人三亚市住建局上诉称：一、一审法院认定事实不清，对于蔡阳提起的行政诉讼不应予以受理，已经立案的，应当依法裁定驳回。首先，蔡阳主张三亚市住建局作出三住建前备字〔2015〕第11号《前期物业管理备案证书》（以下简称11号备案证）时未向其履行通知义务，并无任何法律依据。根据《物业管理条例》第二十二、二十三条的规定，建设单位在销售物业前应当向业主履行告知义务，因此，该告知义务应当由建设单位履行。建设单位依据法定程序选聘物业服务企业后，三亚市住建局应当依法备案，而无权干涉其选聘过程及选聘对象。其次，三亚市住建局作出11号备案证的行为不属于行政诉讼的受案范围，所谓”备案”，从字面理解，仅起到登记备查的法律效果，并不涉及当事人之间权利义务的变更。根据《海南经济特区物业管理条例》第二十七条的规定，建设单位有权自主选聘或通过招标方式选聘物业服务企业。三亚凤凰岛发展有限公司（���下简称凤凰岛发展公司）依据该规定通过招标方式选聘三亚凤凰岛物业管理有限公司（以下简称凤凰岛物业公司）作为三亚凤凰岛国际养生度假中心（以下简称凤凰岛养生中心）的前期物业服务企业的行为属于一般民事行为，且严格遵循了《民法通则》《合同法》中有关意思自治的原则。三亚市住建局依据凤凰岛发展公司的申请，作出11号备案证的行为完全符合《前期物业管理招标投标管理暂行办法》第三十七条之规定。蔡阳权利义务的变更是由于建设单位更换物业服务企业的行为所导致，与本案被诉备案行为无关。根据《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》第三条的规定，本案被诉行政行为对蔡阳的合法权益明显不产生实际影响，应当裁定驳回其起诉。二、一审法院适用法律错误，应当驳回蔡阳的诉讼请求。2015年6月，凤凰岛发展公司与凤凰岛物业公司签订了《三亚凤凰岛国际养生度假公寓中心前期物业服务合同》，并依法向三亚市住建局申请备案登记。三亚市住建局于2015年7月31日作出11号备案证，蔡阳于2017年7月21日向三亚市城郊人民法院提起行政诉讼，要求撤销该证。从三亚市住建局作出备案登记至蔡阳起诉之日，早已超过六个月的法定起诉期限，且蔡阳并未提出任何正当理由。根据《中华人民共和国行政诉讼法》第四十六条、《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》第三条的规定，一审法院应当裁定驳回其诉讼请求。综上，请求二审法院撤销三亚市城郊人民法院作出的（2017）琼0271行初177号行政判决，改判驳回蔡阳的诉讼请求；本案一审、二审案件受理费由蔡阳承担。
被上诉人蔡阳辩称：一、本案中，三亚市住建局在两年时间内向凤凰岛养生中心两次发放《前期物业管理备案证书》。第一次发放《前期物业管理备案证书》时，购房者是知情的。蔡阳在2009年8月购房时就知道凤凰岛养生中心的前期物业管理企业是浙江国都物业管理发展有限公司（以下简称国都公司），并于2013年收房时与国都公司签订了《前期物业服务合同》，也接受了国都公司提供的物业管理服务。因此，无论是建设单位还是《前期物业管理备案证书》的发放单位都履行了告知义务。但在2015年7月以后，蔡阳等众多业主陆续发现提供物业服务的公司不再��原来的国都公司，而是凤凰岛物业公司。此后，物业公司的服务质量越来越差，没有依法履行管理职责。蔡阳作为业主，对凤凰岛养生中心前期物业公司的调换情况具有知情权。二、关于起诉期限的问题，三亚市住建局的第一项上诉理由与第二项上诉理由相互矛盾。蔡阳等业主来自全国各地，有的业主一年或两年回来一趟，如果让所有业主体验物业服务后，发现权利被侵害，请求保护权利的起诉期限仅有六个月，这是对法律的严重曲解。综上，请求二审法院驳回上诉，维持原判。
经审理查明，蔡阳是凤凰岛养生中心E座(海洋之光)E823A20房的所有权人。凤凰岛发展公司是凤凰岛养生中心的建设单位。国都公司是凤凰岛养生中心最初的前期物业服务企业。2015年2月1日，凤凰岛发展公司与国都公司签订《合同解除协议》，约定于2015年1月31日终止双方签订的《前期物业服务合同》，国都公司退出凤凰岛养生中心物业管理工作。2015年6月12日，凤凰岛发展公司经向三亚市住建局请示同意后，通过招、投标方式确定凤凰岛物业公司为凤凰岛养生中心的前期物业管理中标单位。2015年6月10日，凤凰岛发展公司与凤凰岛物业公司签订《三亚凤凰岛国际养生度假公寓中心前期物业服务合同》，凤凰岛发展公司聘用凤凰岛物业公司为凤凰岛养生中心管理区域提供物业服务。2015年7月27日，凤凰岛发展公司向三亚市住建局申请前期物业管理备案。2015年7月31日，三亚市住建局作出11号备案证。该证主要记载：���核验，凤凰岛发展公司选聘凤凰岛物业公司等级暂定（三级）实施凤凰岛养生中心项目前期物业管理服务，符合规定，同意登记备案。蔡阳对该备案登记行为不服，于2017年7月26日向三亚市城郊人民法院提起行政诉讼，要求撤销三亚市住建局作出的11号备案证。三亚市城郊人民法院经审理后，于2017年10月21日作出（2017）琼0271行初177号行政判决，撤销了11号备案证。三亚市住建局不服该判决，向本院提起上诉。
本院认为，《中华人民共和国行政诉讼法》第二十九条第一款规定，公民、法人或者其他组织同被诉行政行为有利���关系但没有提起诉讼，或者同案件处理结果有利害关系的，可以作为第三人申请参加诉讼，或者由人民法院通知参加诉讼。本案中，被诉备案登记行为是关于三亚市住建局同意凤凰岛发展公司选聘凤凰岛物业公司实施凤凰岛养生中心前期物业管理服务的行为，因此，凤凰岛发展公司、凤凰岛物业公司作为凤凰岛养生中心的建设单位、前期物业管理单位与本案的处理结果有利害关系。为了保护当事人的诉讼权利，依法应当追加凤凰岛发展公司、凤凰岛物业公司为第三人参加诉讼，且根据二审终审制的要求，第三人应在一审中追加。但一审法院在审理本案过程中，未通知凤凰岛发展公司、凤凰岛物业公司作为第三人参加诉讼，违反了《中华人民共和国行政诉讼法》第二十九条第一款的规定，因此，本案以发回重审处理更为妥当。另外，一审判决遗漏三亚市住建局的答��意见亦为不当。综上，依照《中华人民共和国行政诉讼法》第八十九条第一款第（四）项的规定，裁定如下：
一、撤销三亚市城郊人民法院（2017）琼0271行初177号行政判决；
二、发回三亚市城郊人民法院重审。
二审案件受理费50元，退还上诉人三亚市住房和城乡建设局。
审判长张维青
审判员陈兴科
审判员杨冲冲
二〇一八年二月八日
法官助理陈浩
书记员李浩
附：本裁定适用的相关法律、法规及司法解释条文
中华人民共和国行政诉讼法
第二十九条公民、法人或者其他组织同被诉行政行为有利害关系但没有提起诉讼，或者同案件处理结果有利害关系的，可以作为第三人申请参加诉讼，或者由人民法院通知参加诉讼。
人民法院判决第三人承担义务或者减损第三人权益的，第三人有权依法提起上诉。
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；
（二）原判决、裁定认定事实错误或者适用法律、法规错误的，依法改判、撤销或者变更；
（三）原判决认定基本事实不清、证据不足的，发回一审人民法院重审，或者查清事实后改判；
（四）原判决遗漏当事人或者违法缺席判决等严重违反法定程序的，裁定���销原判决，发回一审人民法院重审。
一审人民法院对发回重审的案件作出判决后，当事人提起上诉的，第二审人民法院不得再次发回重审。
人民法院审理上诉案件，需要改变一审判决的，应当同时对被诉行政行为作出判决。
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