海南省第二中级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼97行初267号
海南省第二中级人民法院
行政判决书
（2017）琼97行初267号
原告儋州市木棠镇高堂村民委员会吴宅村民小组，住所地儋州市木棠镇高堂村民委员会吴宅村。
负责人吴有成，组长。
委托诉讼代理人王健骁，海南法立信律师事务所律师。
委托诉讼代理人蔡婷，海南法立信律师事务所律师。
被告儋州市人民政府，住所地儋州市中兴大道1号。
法定代表人朱洪武，市长。
委托诉讼代理人王本强，儋州市人民政府法制办工作人员。
原告儋州市木棠镇高堂村民委员会吴宅村民小组（以下简称吴宅村小组）诉被告儋州市人民政府（以下简称儋州市政府）不履行信息公开法定职责一案，于2017年8月8日向本院提起行政诉讼，本院于2017年8月14日立案受理后，依法向被告儋州市政府送达了起诉状副本及应诉通知书。本院依法组成合议庭，于2017年10月25日公开开庭审理了本案。原告吴宅村小组的负责人吴有成及其委托诉讼代理人王健骁、蔡婷，被告儋州市政府的委托诉讼代理人王本强到庭参加诉讼。本案现已审理终结。
被诉行政行为：原告吴宅村小组于2017年6月26日向被告儋州市政府提交《政府信息依申请公开申请表》，被告对原告的信息公开申请在法定期限内未予答复。
原告吴宅村小组诉称：自1990年至今，原告多处土地被政府征收，限于历史原因，当时原告土地被征收时均由原告先向相关政府部门提交盖原告公章、内容空白的协议书，而后由相关政府部门填写内容并加盖政府部门公章后便完成有关征地手续。政府部门征地后，也未向原告发还征地协议，以致原告无法确认原告哪些土地已被政府征收，甚至部分土地自1990年被征收至今，仍保留原状、未开发，村民在这些土地上种植多年，政府部门虽告知原告土地已被征收，但也默许村民多年的种植行为。为了查清原告土地被征收的情况，原告先后向儋州市木棠管委会、儋州市国土局、儋州市木棠镇政府等询问情况，儋州市木棠管委会等政府部门均口头告知1990年政府已征收了相关土地，但拒绝提供相关征地批复及征地协议。鉴于此，原告无奈之下只能向被告申请政府信息公开，原告于2017年6月26日向被告填写并提交了由被告提供的制式《政府信息依申请公开申请表》，申请公开政府信息，被告于2017年6月26日向原告出具《政府信息公开申请收件回执》，载明当日收到原告提交的相关申请。但截止起诉之日，被告仍未答复原告，也未向原告公开相关政府信息。根据《中华人民共和国政府信息公开条例》第二十四条第二款规定，行政机关不能当场答复的，应当自收到申请之日起15个工作日内予以答复；如需延长答复期限的，应当经政府信息公开工作机构负责人同意，并告知申请人，延长答复的期限最长不得超过15个工作日。被告早已超过30个工作日未作答复，被告属于行政不作为。综上，原告认为，原告基于生产、生活需要并作为申请公开信息之利害关系人，有权申请公开相关政府信息，而被告逾期未答复，侵犯了原告的合法权益，根据《最高人民法院关于审理政府信息公开行政案件若干问题的规定》第一条，公民、法人或者其他组织认为下列政府信息公开工作中的具体行政行为侵犯其合法权益，依法提起行政诉讼的，人民法院应当受理：（一）向行政机关申请获取政府信息，行政机关拒绝提供或者逾期不予答复的。原告特向人民法院提起诉讼，请求：确认被告不履行法定职责，对原告依申请公开政府信息之申请未作答复属于行政不作为。本案在诉讼过程中，原告变更其诉讼请求为：确认被告不履行依原告申请公开政府信息的行为违法。
原告吴宅村小组向本院提交了以下证据材料：证据1.《政府信息依申请公开申请表》及相关证明文件，证明原告于2017年6月26日向被告填写并提交了由被告提供的制式《政府信息依申请公开申请表》，并递交证明文件，申请公开政府信息；证据2.《政府信息公开申请收件回执》，证明被告于2017年6月26日向原告出具《政府信息公开申请收件回执》，载明当日收到原告提交的相关申请。
被告儋州市政府辩称：政府确实征用了原告的土地，在开庭之前我方已经向法庭提交了我方的征地手续等证据，希望法庭将我方的证据材料送达给原告方，我方提供证据也算是公开信息了，属于履行了法定职责，原告说我方不履行法定职责没有事实根据和法律依据，依法应驳回原告的诉讼请求。
被告儋州市政府向本院提交了以下证据材料：证据1.《国家建设征用土地协议书》（1993年10月25日)，证明儋州市木棠经济开发区管理委员会与木棠镇高堂管区吴宅村签订征用土地协议书；证据2.《国家建设征用土地协议书》（1992年12月30日），证明儋县木棠经济开发公司与木棠镇高堂管区吴屋村签订征用土地协议书；证据3.《国家建设征用土地协议书》两份（1992年5月31日、1992年7月28日），证明儋县木棠经济开发公司与木棠镇高堂管区吴屋村签订征用土地协议书；证据4.琼土环资函[2003]126号《海南省国土环境资源厅关于涉及核发换地权益书完善征地手续的复函》、琼土环资函[2003]21号《海南省国土环境资源厅关于涉及核发换地权益书完善征地手续的复函》、琼土环资函[2003]332号《海南省国土环境资源厅关于涉及核发换地权益书完善征地手续的复函》、地面附着物青苗补偿费计算表8份，证明海南省国土环境资源厅同意儋州市政府核发换地权益书完善征地手续，吴宅村村民已领取了青苗补偿费。
经庭审质证，各方当事人对本案证据的质证意见如下：
（一）关于原告提交的证据材料。被告对原告提供的两份证据的真实性无异议。
（二）关于被告提交的证据材料。原告对被告提交的证据1-4的真实性无异议，但对其证明力有异议，认为不能达到证明其已经履行了法定职责，且被告方也属于逾期举证，被告已经超过了十五天的举证期限，原告也在提起本案诉讼之前已经向被告提出了信息公开的申请，但是被告也没有在期限内对原告进行答复。
本院对上述证据认证如下：
（一）关于原告提交的证据材料。本院认为，原告提交的证据来源真实、合法，能够证明其向被告提出了信息公开的申请及内容，与本案具有关联性，本院对其真实性、合法性、关联性及证明内容均予以确认。
（二）关于被告提交的证据材料。本院认为，被告提交的证据来源真实、合法，属于原告申请公开的内容，与本案具有关联性，本院对其真实性、合法性、关联性予以确认。
经审理查明：2017年6月26日，原告吴宅村小组向被告儋州市政府提交《政府信息依申请公开申请表》及相关的法定代表人身份证明、授权委托书等材料，申请表中载明所需公开的信息为：”儋州市木棠镇高堂村民委员会吴宅村民小组于1990年签署的相关征地协议，以及吴宅村民小组被征地的相关征地批复材料”。同日，儋州市政府办公室向原告出具《政府信息公开申请收件回执》。直至2017年8月8日，原告向本院提起本案诉讼，被告对原告的信息公开申请未作出答复。
另查明，本案在审理过程中，原告吴宅村小组确认本院向其送达的被告儋州市政府举证的材料属于其申请公开的政府信息。
本院认为，根据原、被告在本案中的诉辩意见及本院依法确认的有效证据，可以确认本案的无争议事实是：原告吴宅村小组申请政府信息公开的内容属于被告儋州市政府依申请应当信息公开的内容；本案争议的焦点问题是：被告针对原告的信息公开申请是否依法履行了政府信息公开的法定职责。对于原告依法提出的信息公开申请，根据《中华人民共和国政府信息公开条例》第二十四条第二款：”行政机关不能当场答复的，应当自收到申请之日起15个工作日内予以答复；如需延长答复期限的，应当经政府信息公开工作机构负责人同意，并告知申请人，延长答复的期限最长不得超过15个工作日。”的规定，被告作为负有本案信息公开法定职责的行政机关，在收到原告申请后，应当在15个工作日内做出答复，需要延长答复期限的也应当经负责人同意并在告知申请人的情况下，方能延长15个工作日，即最长不能超过三十个工作日。本案中，原告2017年6月26日向被告提出政府信息公开申请，被告最迟也应当在2017年8月8日作出答复，但是被告直至原告于2017年8月8日向本院提起本案诉讼时，也未作出任何答复，其逾期未答复的行为明显违法。鉴于被告在本案的诉讼过程中，已经于2017年9月27日向本院提交了相关的证据材料，本院依法向原告进行了送达，原告在庭审中也已经确认被告所提交的证据材料属于其所申请的信息公开内容，因此，应认为原告通过本案诉讼已获得其向被告申请政府信息公开的相关内容。至于被告据此认为其已实际履行了政府信息公开的法定职责，本院认为，被告作为行政机关，在行政诉讼中负有依法向人民法院提供证据的法定义务，其在此期间所提供的证据虽然包含政府信息公开的相关内容，但被告通过在行政诉讼中提供证据间接为申请人所获得的政府信息，违反了行政机关公开政府信息应当遵循的公开、公正、便民的基本原则，与被告应原告申请公开政府信息具有本质的区别，并不属于行政机关履行了信息公开的法定职责，本院对此予以指正。
综上所述，被告儋州市政府对原告吴宅村小组的政府信息公开申请逾期未作答复，且在本案行政诉讼的过程中改变其原违法行政行为，通过提供证据的方式间接向原告信息公开，明显违反法律规定，应确认违法。依照《中华人民共和国行政诉讼法》第七十四条第二款第（二）项的规定，判决如下：
确认被告儋州市人民政府未依原告儋州市木棠镇高堂村民委员会吴宅村民小组申请公开政府信息的行政行为违法。
案件受理费50元，由被告儋州市人民政府负担。
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提出副本，上诉于海南省高级人民法院。
审判长张成信
审判员张德雄
审判员孔凡勇
二○一七年十一月二十八日
法官助理李治
书记员羊家莹
书记员羊家莹
附：本判决适用的相关法律依据
《中华人民共和国政府信息公开条例》
第二十一条对申请公开的政府信息，行政机关根据下列情况分别作出答复：
（一）属于公开范围的，应当告知申请人获取该政府信息的方式和途径；
（二）属于不予公开范围的，应当告知申请人并说明理由；
（三）依法不属于本行政机关公开或者该政府信息不存在的，应当告知申请人，对能够确定该政府信息的公开机关的，应当告知申请人该行政机关的名称、联系方式；
（四）申请内容不明确的，应当告知申请人作出更改、补充。
第二十四条行政机关收到政府信息公开申请，能够当场答复的，应当当场予以答复。
行政机关不能当场答复的，应当自收到申请之日起15个工作日内予以答复；如需延长答复期限的，应当经政府信息公开工作机构负责人同意，并告知申请人，延长答复的期限最长不得超过15个工作日。
申请公开的政府信息涉及第三方权益的，行政机关征求第三方意见所需时间不计算在本条第二款规定的期限内。
《中华人民共和国行政诉讼法》
第七十四条行政行为有下列情形之一的，人民法院判决确认违法，但不撤销行政行为：
（一）行政行为依法应当撤销，但撤销会给国家利益、社会公共利益造成重大损害的；
（二）行政行为程序轻微违法，但对原告权利不产生实际影响的。
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；
（二）被告改变原违法行政行为，原告仍要求确认原行政行为违法的；
（三）被告不履行或者拖延履行法定职责，判决履行没有意义的。
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