海南省高级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼行终34号
海南省高级人民法院
行政裁定书
（2017）琼行终34号
上诉人（原审原告）：于波，男，1976年7月22日出生，汉族，现住广东省肇庆市。
委托诉讼代理人：张帆，北京德恒律师事务所律师。
委托诉讼代理人：刘臻，北京德恒律师事务所律师。
被上诉人（原审被告）：海南省工商行政管理局，住所地海南省海口市蓝天路4号。
法定代表人：陈楷，该局局长。
委托诉讼代理人：杜文，该局政策法规处干部。
委托诉讼代理人：文驹，该局企业监管局干部。
上诉人于波因与被上诉人海南省工商行政管理局（以下简称省工商局）工商行政管理纠纷一案，不服海南省海口市中级人民法院作出的（2016）琼01行初274号行政裁定，向本院提起上诉。本院于2017年1月14日立案后，依法组成合议庭进行审理，本案现已审理终结。
于波向原审法院起诉称，海南周易影视制作有限公司（以下简称周易公司）的法定代表人周易于2008年利用于波的身份证复印件，伪造其签名，并制作股权转让、公司章程修正案等一系列虚假文件向省工商局提出经营范围、法定代表人、注册号和企业类型等变更申请。2008年1月22日，省工商局核准周易公司的变更登记，其中，法定代表人由”周易”变更为”于波”，股东由”宁卉英”（持股比例80%）、”周易”（持股比例20%）变更为”于波”（持股比例60%）、”杨俊毅”（持股比例40%），但于波对此均不知情也没有参与。于波知道上述情形后，多次向省工商局反映周易公司的违法行为，并提交了撤销行政行为申请书以及笔迹鉴定等证明材料，但省工商局一直不予受理和处理。2016年1月18日，于波再次向省工商局申请撤销2008年1月22日做出的关于周易公司法定代表人及股东的变更登记，于波反映的事项属于省工商局的法定职责，省工商局应当及时受理申请，进行核实处理并将结果告知于波，但是省工商局仍未受理和处理，属于不履行法定职责的行政不作为。故2016年6月2日，于波向海口市美兰区人民法院提起行政诉讼，同年6月27日，海口市美兰区人民法院以（2016）琼0108行初28号行政裁定书裁定移送海口市中级人民法院审理。诉讼请求为：请求判令省工商局依法履行法定职责，受理于波2016年1月18日提出的撤销行政行为申请，并告知处理结果。
省工商局向原审法院辩称，一、2014年2月16日，于波向省工商局投诉称，周易公司的法定代表人周易通过伪造其签名、制作虚假文件的方式向省工商局提出法定代表人、股东等变更申请，2008年1月22日，省工商局核准周易公司的变更登记，但于波对此均不知情也没有参与。接到投诉后，省工商局即成立办案小组，进行前期调查，但由于周易公司及周易本人无法取得联系等，未批准立案，省工商局已通过电话告知于波处理结果及暂不予立案理由。于波于2015年8月31日、2016年1月18日先后两次向省工商局提交撤销行政行为申请书，但因为证据不足，省工商局都未批准立案，通过电话向其告知处理结果及不予立案理由。省工商局根据法定程序对案件进行调查，且履行了告知义务，因此，于波认为省工商局不依法履行法定职责，属于行政不作为的观点明显不当。二、2008年1月21日，周易公司向省工商局提出变更登记申请，并按照有关规定，提交申请材料，经省工商局审查，认为周易公司提交的材料齐全、符合法定形式，依法核准了其变更申请。针对于波提出的其签名是周易伪造的，根据《中华人民共和国公司登记管理条例》第二条第二款、以及国家工商行政管理总局《关于登记主管机关对申请人提交的材料真实性是否承担相应责任问题的答复》的有关规定，进行公司登记时，登记主管机关的责任为对申请人提交的有关申请材料和证明文件是否齐全、以及申请材料和证明文件及其所记载事项是否符合规定进行审查，申请材料的真实性由申请人负责，因此，省工商局对于波的签名没有审查真实性的义务。三、2014年10月8日，于波不服省工商局核准周易公司变更登记的具体行政行为，向海口市中级人民法院提起行政诉讼，海口市中级人民法院作出（2014）海中法行初字第126号行政裁定书，认定于波提起诉讼已超过法定起诉期限，裁定驳回起诉。综上所述，省工商局作出核准周易公司变更登记的具体行政行为符合法律规定；针对于波提出的撤销行政行为申请，也履行了法定职责；另，于波的起诉已经超过法定起诉期限，请求法院驳回起诉。
原审法院认为，本案中，于波的诉讼请求系请求判令省工商局履行法定职责，受理其关于撤销省工商局核准工商变更登记行政行为的申请，于波申请和诉请的目的和结果与省工商局核准涉案工商变更登记行政行为合法性问题的审查有关，故对其起诉期限应进行审查。涉案工商变更登记行为发生于2008年1月22日，不属于涉及不动产的行政行为，于波提起本案诉讼的时间为2016年6月2日，距省工商局作出涉案工商变更登记行为已逾5年。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》第四十二条关于”公民、法人或者其他组织不知道行政机关作出的具体行政行为内容的，其起诉期限从知道或者应当知道该具体行政行为内容之日起计算。对涉及不动产的具体行政行为从作出之日起超过20年、其他具体行政行为从作出之日起超过5年提起诉讼的，人民法院不予受理”的规定，本案应不予受理。由于本案已立案受理，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》第三条第一款第（二）项的规定，应裁定驳回起诉。综上所述，于波提起本案诉讼，已超过法定起诉期限，应裁定驳回起诉。原审法院依照《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》第三条第一款第（二）项的规定，裁定驳回于波的起诉。
于波不服原审裁定，上诉称，一、2016年1月18日，上诉人于波再次向被上诉人省工商局提交了撤销工商变更登记申请书，然而被上诉人在收到申请后，既没有受理和处理，也没有将结果告知上诉人。被上诉人不履行法定职责，属于行政不作为，上诉人对此行政不作为向原审法院提起行政诉讼，请求判决被上诉人依法履行法定职责，受理上诉人2016年1月18日提出的撤销行政行为申请，并将处理结果告知上诉人，即上诉人的起诉针对的是该行政不作为提起的。但原审法院认为，本案中上诉人申请和诉请的目的和结果与被上诉人核准涉案工商变更登记行政行为合法性问题的审查有关，原审法院据此对上诉人的起诉期限进行审查，认为超过起诉期限，裁定驳回上诉人的起诉。上诉人认为，原审法院对案件事实认定不清。二、上诉人的诉求是针对被上诉人的行政不作为提起的，对此应当适用《中华人民共和国行政诉讼法》第四十七条第一款：”公民、法人或者其他组织申请行政机关履行保护其人身权、财产权等合法权益的法定职责，行政机关在接到申请之日起两个月内不履行的，公民、法人或者其他组织可以向人民法院提起诉讼。法律、法规对行政机关履行职责的期限另有规定的，从其规定。”以及《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》第四条：”公民、法人或者其他组织依照行政诉讼法第四十七条第一款的规定，对行政机关不履行法定职责提起诉讼的，应当在行政机关履行法定职责期限届满之日起六个月内提出。”之规定，而不应当适用《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》第四十二条，因此原审法院适用法律错误。综上所述，上诉人的起诉是针对被上诉人行政不作为提起的，原审法院对案件事实认定不清，适用法律错误，上诉人的起诉并没有超过起诉期限，不应裁定驳回起诉。故请求二审法院撤销原审裁定，指令原审法院继续审理本案。
省工商局答辩称，2016年1月18日，上诉人向省工商局提出撤销行政行为申请，但因为证据不足，省工商局未批准立案，根据有关规定，对于未予立案的案件，不必书面答复，口头答复即可，省工商局已经通过电话向上诉人告知处理结果及不予立案的理由。省工商局履行了法定职责，行为符合法律规定，不属于行政不作为。故请求二审法院驳回上诉人的上诉，维持原审裁定。
本院查明的事实与一审法院查明的事实一致。
本院认为，本案诉讼请求为：请求判令省工商局依法履行法定职责，受理于波2016年1月18日提出的撤销行政行为申请，并告知处理结果。其实质就是要求人民法院审查涉案工商变更登记行为是否合法，涉案工商变更登记行为发生于2008年1月22日，于波提起本案诉讼的时间为2016年6月2日，距省工商局作出涉案工商变更登记行为已逾5年。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》第四十二条关于”公民、法人或者其他组织不知道行政机关作出的具体行政行为内容的，其起诉期限从知道或者应当知道该具体行政行为内容之日起计算。对涉及不动产的具体行政行为从作出之日起超过20年、其他具体行政行为从作出之日起超过5年提起诉讼的，人民法院不予受理”的规定，本案应不予受理。另，上诉人主张本案是针对被上诉人的行政不作为提起的，如果所有超过起诉期限的行政行为，都以责令行政机关履行法定职责的形式进入司法审查，最终导致前述法条设定的最长起诉期限虚设。综上所述，上诉人提起本案诉讼，超过法定起诉期限，应依法裁定驳回。
综上，于波的上诉请求不能成立，一审裁定认定事实清楚、适用法律正确，依照《中华人民共和国行政诉讼法》第八十九条第（一）项之规定，裁定如下：
驳回上诉，维持原裁定。
本裁定为终审裁定。
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审判长魏文豪审判员凌杰泉
审判员孔琼
法官助理李宗帅书记员文明哲
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[{法规名称:\'《中华人民共和国刑法》\',Items:[{法条名称:\'第一百三十三条\',法条内容:\' 第一百三十三条
违反交通运输管理法规，因而发生重大事故，致人重伤、死亡或者使公私财产遭受重大损失的，处三年以下有期徒刑或者拘役；交通运输肇事后逃逸或者有其他特别恶劣情节的，处三年以上七年以下有期徒刑；因逃逸致人死亡的，处七年以上有期徒刑。
\'},{法条名称:\'第六十七条第一款\',法条内容:\'
第六十七条 犯罪以后自动投案，如实供述自己的罪行的，是自首。对于自首的犯罪分子，可以从轻或者减轻处罚。其中，犯罪较轻的，可以免除处罚。
被采取强制措施的犯罪嫌疑人、被告人和正在服刑的罪犯，如实供述司法机关还未掌握的本人其他罪行的，以自首论。
犯罪嫌疑人虽不具有前两款规定的自首情节，但是如实供述自己罪行的，可以从轻处罚；因其如实供述自己罪行，避免特别严重后果发生的，可以减轻处罚。
\'},{法条名称:\'第六十七条第一款\',法条内容:\'
第六十七条 犯罪以后自动投案，如实供述自己的罪行的，是自首。对于自首的犯罪分子，可以从轻或者减轻处罚。其中，犯罪较轻的，可以免除处罚。
被采取强制措施的犯罪嫌疑人、被告人和正在服刑的罪犯，如实供述司法机关还未掌握的本人其他罪行的，以自首论。
\'},{法条名称:\'第七十二条第一款\',法条内容:\'
第七十二条
对于被判处拘役、三年以下有期徒刑的犯罪分子，同时符合下列条件的，可以宣告缓刑，对其中不满十八周岁的人、怀孕的妇女和已满七十五周岁的人，应当宣告缓刑：
（一）犯罪情节较轻；
（二）有悔罪表现；
（三）没有再犯罪的危险；
（四）宣告缓刑对所居住社区没有重大不良影响。
宣告缓刑，可以根据犯罪情况，同时禁止犯罪分子在缓刑考验期限内从事特定活动，进入特定区域、场所，接触特定的人。
被宣告缓刑的犯罪分子，如果被判处附加刑，附加刑仍须执行。
\'},{法条名称:\'第七十二条第一款\',法条内容:\' 第七十二条
对于被判处拘役、三年以下有期徒刑的犯罪分子，根据犯罪分子的犯罪情节和悔罪表现，适用缓刑确实不致再危害社会的，可以宣告缓刑。
被宣告缓刑的犯罪分子，如果被判处附加刑，附加刑仍须执行。
\'},{法条名称:\'第七十三条第一款\',法条内容:\' 第七十三条
拘役的缓刑考验期限为原判刑期以上一年以下，但是不能少于二个月。
有期徒刑的缓刑考验期限为原判刑期以上五年以下，但是不能少于一年。
缓刑考验期限，从判决确定之日起计算。
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