海南省第二中级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼97行审2号
海南省第二中级人民法院
行政裁定书
（2017）琼97行审2号
申请执行人东方市林业局，住所东方市八所镇东海路22号。
法定代表人吴伟，该局局长。
委托代理人曾诗华，海南遂良律师事务所律师。
被执行人陀忠韩，男，成年，黎族，住址昌江县。
申请执行人东方市林业局于2017年2月27日向本院申请强制执行东林罚书字[2016]第15号行政处罚决定。本院3月6日受理后，依法组成合议庭进行了审查，本案现已审查终结。
申请执行人东方市林业局以被执行人陀忠韩未经林业部门批准于2016年3月-5月初在东方市××镇红石岭处占用林地85.76平方米挖洞建房的行为，违反了《海南经济特区林地管理条例》第三十八条的规定为由，请求人民法院强制执行该局于2016年5月27日对被执行人陀忠韩作出的东林罚书字[2016]第15号《林业行政处罚决定书》（以下简称15号处罚决定），申请执行事项：1.强制被申请人陀忠韩支缴罚款人民币514.6元；2.强制拆除被申请人陀忠韩在地面所建的建筑物，恢复土地原状。事实及理由：东方市林业局于2016年5月27日作出15号处罚决定并送达被执行人陀忠韩，其在法定期限内未申请行政复议、未提起行政诉讼，也未履行行政处罚决定，经依法催告，被执行人陀忠韩无正当理由逾期仍未履行义务。申请执行人东方市林业局提交的证据有：非诉执行申请书、申请执行人法定代表人身份证明及授权委托书、东方市东河镇红石岭现场测量图、东林罚书字[2016]第15号《林业行政处罚决定书》及送达回证、东林罚先告字[2016]第15号《行政处罚事先告知书》及送达回证、东林执法催字[2016]01号《催告书》复印件等在案证据。
经审理查明，申请执行人东方市林业局因被执行人陀忠韩未经林业部门批准于2016年3月-5月在东方市××镇红石岭处非法占有约85.76平方米林地建房，依据《海南经济特区林地管理条例》第三十八条的规定，于2016年5月23日向被执行人陀忠韩作出东林罚先告字[2016]第15号《行政处罚事先告知书》（听证权利告知书）告知拟处罚内容及被执行人享有提出陈述、申辩、要求听证的权利，当日送达被执行人。而被执行人陀忠韩逾期不提供陈述、申辩意见，东方市林业局于2016年5月27日作出东林罚书字[2016]第15号《林业行政处罚决定书》，对被执行人陀忠韩作出如下行政处罚：1.责令被执行人停止违法行为，限期恢复原状；2.处每平方米6元罚款共计6元/平方米×85.76平方米=514.6元。该处罚决定于当日送达当事人，并告知其若对该处罚决定不服，可享有60日内申请行政复议和6个月内提起行政诉讼的权利。东方市林业局于2016年9月18日向被执行人陀忠韩作出东林执法催字[2016]01号《催告书》，督促被执行人于2016年10月3日前履行15号处罚决定，该催告书于2016年9月23日送达被执行人。因被执行人陀忠韩在法定期限内不申请行政复议及提起行政诉讼，又不履行行政处罚决定，申请执行人东方市林业局遂依照《中华人民共和国行政强制法》第五十三条和第五十四的规定，向本院申请强制执行。
本院认为，首先，《中华人民共和国行政处罚法》第三十九条第一款规定：”行政机关依照本法第三十八条的规定给予行政处罚，应当制作行政处罚决定书。行政处罚决定书应当载明下列事项：......（四）行政处罚的履行方式和期限......”。本案中，申请执行人东方市林业局在处罚决定的第一项内容是：”责令被执行人停止违法行为，限期恢复原状”，该内容并未载明恢复原状的具体期限，无法确定强制执行的期限，属于履行期限不明确的处罚决定。
其次，《中华人民共和国行政强制法》第五十五条第一款规定：”行政机关向人民法院申请强制执行，应当提供下列材料：（一）强制执行申请书；（二）行政决定书及作出决定的事实、理由和依据；（三）当事人的意见及行政机关催告情况；（四）申请强制执行标的情况；（五）法律、行政法规规定的其他材料。”本案行政机关在申请强制执行时，并未提供”当事人的意见”及”申请强制执行标的情况”等相关材料，不符合法律规定。
第三，《中华人民共和国行政强制法》第五十三条规定：”当事人在法定期限内不申请行政复议或者提起行政诉讼，又不履行行政决定的，没有行政强制执行权的行政机关可以自期限届满之日起三个月内，依照本章的规定申请人民法院强制执行。”该法第五十四条规定：”行政机关申请人民法院强制执行前，应当催告当事人履行义务。催告书送达十日后当事人仍未履行义务的，行政机关可以向所在地有管辖权的人民法院申请强制执行；执行对象是不动产的，向不动产所在地有管辖权的人民法院申请强制执行。”结合两条的规定和行政效率原则可知，行政机关在能向人民法院申请强制执行前应当催告当事人履行义务。也就是说，当事人在法定期限内不申请行政复议或者提起行政诉讼，也不履行行政决定的，在该法定期限届满之日起至三个月内，即起诉期限届满之日起至三个月内，行政机关有权利向人民法院申请强制执行，所以没有强制执行权的行政机关取得向人民法院申请强制执行的权利是起算于起诉期限届满、消失于届满之日起三个月。因此行政机关申请人民法院强制执行前的催告义务，应当在行政机关取得申请人民法院强制执行的权利之日起三个月内作出。据此，申请执行人东方市林业局的处罚决定是2016年5月27日作出的，被执行人在6个月的起诉期限内未提起行政诉讼也不履行行政决定，东方市林业局于起诉期限届满之日即2016年11月27日起取得向人民法院申请强制执行的权利，所以至2017年2月27日止三个月内，向人民法院提出强制执行的申请前应当履行催告义务。本案中，东方市林业局在起诉期限届满之日即起2016年11月27日至2017年2月27日向人民法院提出强制执行申请时，未向被执行人作出《催告书》，其催告书是在2016年9月18日作出的。
综上，申请执行人东方市林业局对被执行人陀伟作出的行政处罚明显缺乏事实根据、程序明显违法，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》第九十五条第（一）、第（三）项的规定，裁定如下：
不准予强制执行申请执行人东方市林业局于2016年5月27日向被执行人陀忠韩作出的东林罚书字[2016]第15号《林业行政处罚决定书》。
申请执行人如不服本裁定，可以在收到裁定书之日起十五日内，通过本院向海南省高级人民法院申请复议，也可以直接向海南省高级人民法院申请复议。
审判长赖永驰
审判员许杏花
审判员梁晶晶
二○一七年三月二十九日
书记员吴淑骞
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《中华人民共和国合同法》第一百九十六条借款合同是借款人向贷款人借款，到期返还借款并支付利息的合同。
第二百零六条借款人应当按照约定的期限返还借款。对借款期限没有约定或者约定不明确，依照本法第六十一条的规定仍不能确定的，借款人可以随时返还；贷款人可以催告借款人在合理期限内返还。
《最高人民法院关于适用若干问题的解释（二）》第二十四条债权人就夫妻关系存续期间夫妻一方以个人名义所负债务主张权利的，应当按夫妻共同债务处理。但夫妻一方能够证明债权人与债务人明确约定为个人债务，或者能够证明属于婚姻法第十九条第三款规定情形的除外。
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