海南省第二中级人民法院
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（2017）琼97行终65号
海南省第二中级人民法院
行政判决书
（2017）琼97行终65号
上诉人（原审原告）海南献林建筑安装工程有限公司，住所地海口市人民大道33号新宏兴大厦十楼。
法定代表人曾清福，该公司总经理。
委托诉讼代理人朱新华，海南外经律师事务所律师。
上诉人（原审被告）昌江黎族自治县住房和城乡建设局，住所地昌江黎族自治县石碌镇人民北路79号。
法定代表人林英俊，该局局长。
委托诉讼代理人李滔滔，该局股长。
委托诉讼代理人廖波，海南瑞来律师事务所律师。
原审第三人海南昌江鑫龙房地产开发有限公司，住所地昌江黎族自治县石碌镇昌江大道。
法定代表人蔡景鹏，该公司总经理。
委托诉讼代理人王国章，北京市中银律师事务所律师。
原审第三人甘肃第六建设集团股份有限公司，住所地甘肃省兰州市城关区皋兰路221号。
法定代表人曹景凯，该公司董事长。
委托诉讼代理人王国章，北京市中银律师事务所律师。
上诉人海南献林建筑安装工程有限公司（以下简称献林公司）因与上诉人昌江黎族自治县住房和城乡建设局（以下简称昌江县住建局）及原审第三人海南昌江鑫龙房地产开发有限公司（以下简称鑫龙公司）、甘肃第六建设集团股份有限公司（以下简称甘肃六建）行政许可纠纷一案，不服昌江黎族自治县人民法院（2017）琼9026行初3号行政判决，向本院提起上诉。本院依法组成合议庭，于2017年11月14日公开开庭审理了本案。上诉人献林公司委托诉讼代理人朱新华、昌江县住建局委托诉讼代理人李滔滔、廖波及原审第三人鑫龙公司、甘肃六建的共同委托诉讼代理人王国章到庭参加诉讼。本案现已审理终结。
被诉行政行为：昌江县住建局于2016年9月13日以鑫龙公司与献林公司解除施工合同为由将编号为×××的建筑工程施工许可证变更为编号为×××的建筑工程施工许可证，变更内容为将原施工单位献林公司变更为甘肃六建。
一审法院查明：上诉人献林公司与第三人鑫龙公司于2014年2月签订《建设工程施工合同》，昌江县住建局于2014年9月15日颁发建筑工程施工许可证，工程名称为山海黎巷（一期：1#、2#、7#号楼）工程，施工单位为献林公司。后献林公司与第三人鑫龙公司因施工合同纠纷，向人民法院提起诉讼，海南省第二中级人民法院一审判决献林公司与第三人鑫龙公司的施工合同解除。鑫龙公司即向昌江县住建局申请重新颁发施工许可证，昌江县住建局于2016年9月13日作废原建筑工程施工许可证，重新颁发编号为×××的建筑工程施工许可证，施工单位为第三人甘肃六建。献林公司不服海南省第二中级人民法院的一审判决，向海南省高级人民法院提起上诉，海南省高级人民法院终审判决献林公司和第三人鑫龙公司的施工合同不予解除。献林公司认为昌江县住建局在献林公司与鑫龙公司的施工合同未解除的情况下，变更施工单位的行政行为违法，且程序不当，向一审法院提起本案诉讼。
一审法院认为，行政机关作出行政行为，应作到事实清楚，证据确凿充分。《中华人民共和国建筑法》第八条规定：”申请领取施工许可证，应当具备下列条件：（一）已经办理该建筑工程用地批准手续；（二）在城市规划区的建筑工程，已经取得规划许可证；（三）需要拆迁的，其拆迁进度符合施工要求；（四）已经确定建筑施工企业；（五）有满足施工需要的施工图纸及技术资料；（六）有保证工程质量和安全的具体措施；（七）建设资金已经落实；（八）法律、行政法规规定的其他条件。建设行政主管部门应当自收到申请之日起十五日内，对符合条件的申请颁发施工许可证。”《建筑工程施工许可管理办法》第四条规定：”建设单位申请领取施工许可证，应当具备下列条件，并提交相应的证明文件：（一）依法应当办理用地批准手续的，已经办理该建筑工程用地批准手续。（二）在城市、镇规划区的建筑工程，已经取得建设工程规划许可证。（三）施工场地已经基本具备施工条件，需要征收房屋的，其进度符合施工要求。（四）已经确定施工企业。按照规定应当招标的工程没有招标，应当公开招标的工程没有公开招标，或者肢解发包工程，以及将工程发包给不具备相应资质条件的企业的，所确定的施工企业无效。（五）有满足施工需要的技术资料，施工图设计文件已按规定审查合格。（六）有保证工程质量和安全的具体措施。施工企业编制的施工组织设计中有根据建筑工程特点制定的相应质量、安全技术措施。建立工程质量安全责任制并落实到人。专业性较强的工程项目编制了专项质量、安全施工组织设计，并按照规定办理了工程质量、安全监督手续。（七）按照规定应当委托监理的工程已委托监理。（八）建设资金已经落实。建设工期不足一年的，到位资金原则上不得少于工程合同价的50%，建设工期超过一年的，到位资金原则上不得少于工程合同价的30%。建设单位应当提供本单位截至申请之日无拖欠工程款情形的承诺书或者能够表明其无拖欠工程款情形的其他材料，以及银行出具的到位资金证明，有条件的可以实行银行付款保函或者其他第三方担保。（九）法律、行政法规规定的其他条件。县级以上地方人民政府住房城乡建设主管部门不得违反法律法规规定，增设办理施工许可证的其他条件。”在本案诉讼过程中，昌江县住建局未向一审法院提交其已按照上述法律规定审查建设单位材料的证据。关于昌江县住建局提出建设单位即第三人鑫龙公司在第一次申请时已提交了齐全的材料，故在第二次申请时未要求鑫龙公司提交的主张，一审法院认为，行政机关在诉讼中应当提交充分证据证明行政行为的合法性，没有提出证据的，依法应认定行政机关作出的具体行政行为没有证据、依据。关于献林公司提出的昌江县住建局颁发编号为×××的建筑工程施工许可证是在献林公司与第三人鑫龙公司的施工合同未解除的情况下违法颁发及未举行听证程序违法的问题，一审法院认为，在建设工程施工合同中，建设单位与施工单位是民事法律关系，建设单位可以自主选择施工单位，昌江县住建局依行政相对人的申请作出行政行为不受相对人的民事行为所约束，且献林公司与第三人之间的利益关系是合同关系，该许可行为不属直接涉及第三人与献林公司之间重大利益的行政许可，不适用《中华人民共和国行政许可法》第四十七条”行政许可直接涉及申请人与他人之间重大利益的，行政机关在作出行政许可决定前，应当告知申请人、利害关系人享有要求听证的权利”的规定，故对于献林公司的主张，一审法院不予支持。《中华人民共和国行政诉讼法》第七十条规定：”行政行为有下列情形之一的，人民法院判决撤销或者部分撤销，并可以判决被告重新作出行政行为:（一）主要证据不足的；（二）适用法律、法规错误的；（三）违反法定程序的；（四）超越职权的；（五）滥用职权的；（六）明显不当的。”第七十四条第一款第一项规定：”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；”根据上述法律规定，昌江县住建局作出的行政行为主要证据不足，应予以撤销，但因行政行为所许可的建筑工程业已竣工验收，该项目的房产已经对外销售，因此，该行政行为影响到工程项目的验收及众多业主后续办理房产证等事项，撤销该行政行为将对社会公共利益造成重大损害。综上，一审法院依照《中华人民共和国行政诉讼法》第七十条第（一）项、第七十四条第一款第（一）项的规定,判决:确认昌江黎族自治县住房和城乡建设局于2016年9月13日作出的编号为×××的《建筑工程施工许可证》的行政行为违法。案件受理费50元，由昌江黎族自治县住房和城乡建设局负担。
上诉人献林公司上诉称：一审法院认定建设单位可以自主选择施工单位，昌江县住建局依据行政相对人的申请作出行政行为不受相对人的民事行为所约束是错误的。本案已由生效的民事判决认定献林公司与鑫龙公司继续履行合同，且不得解除合同，鑫龙公司无权自主选择施工单位。在鑫龙公司拖欠献林公司巨额工程款的情况下，昌江县住建局依据鑫龙公司的申请作出许可变更施工单位的行政行为违法。一审法院认定献林公司与鑫龙公司之间的利益是合同关系，不属于直接涉及献林公司的重大利益的行政许可是错误的，献林公司有权要求在行政许可变更前进行听证。一审法院认定涉案工程业已竣工验收错误。一审法院适用法律错误。本案没有证据证明撤销涉案的行政许可将对社会公共利益造成重大损害，一审法院作出确认行政行为违法不当，应撤销昌江县住建局作出的编号为×××的建筑工程施工许可证。综上，上诉人请求二审法院：1.撤销昌江黎族自治县人民法院作出的（2017）琼9026行初3号行政判决；2.撤销后颁发的编号为×××、证号为00012589的建筑工程施工许可证，恢复原颁发的编号为×××、证号为00004489的建筑工程施工许可证。
针对上诉人献林公司的上诉请求及理由，上诉人昌江县住建局答辩称：一审法院认定的事实清楚，昌江县住建局颁发的×××的建筑工程施工许可证程序合法。
上诉人昌江县住建局上诉称：本案建设单位鑫龙公司在第一次申请建筑工程施工许可证时已提交了符合法律规定的全部材料，其于2016年9月13日以施工单位发生变更为由第二次申请新的建筑工程施工许可证，并提交了其与甘肃六建签订建筑工程施工合同等相关全部材料。昌江县住建局经审核，认为施工单位确已发生变更，鑫龙公司在第一次申请已经过审查，无需重复提交，鑫龙公司的申请符合法律的规定，依照程序作出新的建筑工程施工许可证。一审法院以昌江县住建局未要求鑫龙公司在第二次申请时提交与变更施工单位无关的其他材料为由，认定昌江县住建局作出的行政行为没有证据确认违法的处理结果错误，应当予以撤销。综上，昌江县住建局请求二审法院：撤销昌江黎族自治县人民法院作出的（2017）琼9026行初3号行政判决，改判驳回献林公司的诉讼请求。
针对上诉人昌江县住建局的上诉请求及理由，上诉人献林公司答辩称：昌江县住建局在没有任何依据的情况下，以献林公司与鑫龙公司解除《建设工程施工合同》为由作废献林公司的建筑工程施工许可证错误。昌江县住建局作出的×××的建筑工程施工许可证的主要证据不足，违反法律规定，剥夺献林公司的陈述、申辩和听证的权利。
原审第三人鑫龙公司、甘肃六建陈述意见称：首先，其不同意献林公司的诉讼请求。本案所涉的工程已经全部完工，且大部分房屋都已经出售给业主，献林公司与鑫龙公司之间没有实际履行建设施工合同的可能性。献林公司不是法律规定的重大利益相对人，昌江县住建局按照法律规定作出的×××的建筑工程施工许可证合法有效。其次，一审法院确认昌江县住建局的行政行为违法是错误的。昌江县住建局在第一次向献林公司颁证时已经全面审查了全部资料，在第二次向甘肃六建颁发许可证时，鑫龙公司再次提交了必备的全部资料。对于法律规定的管理性的材料缺失，不影响建筑工程施工许可证的审核，因此，昌江县住建局第二次作出的行政行为是合法的。
本院经审理查明确认一审法院查明的事实。另查明，本案所涉的山海黎巷（一期：1#、2#、7#号楼）项目工程已竣工验收，该工程所建设的房屋已对外销售。
本院认为，《中华人民共和国行政诉讼法》第三十四条第一款规定：”被告对作出的行政行为负有举证责任，应当提供作出该行政行为的证据和所依据的规范性文件。”本案中，昌江县住建局对其颁发×××号建筑工程施工许可证的行政行为应当负有举证责任，在一审诉讼过程中，昌江县住建局虽然提交了鑫龙公司第一次申请建筑工程施工许可证的材料，但根据《建筑工程施工许可管理办法》第五条第二款：”建筑工程在施工过程中，建设单位或者施工单位发生变更的，应当重新申请领取施工许可证。”的规定，昌江县住建局应当按照《中华人民共和国建筑法》第八条以及《建筑工程施工许可管理办法》第四条规定的全部材料予以审核，昌江县住建局在本案诉讼中应当提交鑫龙公司第二次申请建筑工程施工许可证的全部材料，昌江县住建局上诉称对于鑫龙公司第二次申请变更施工单位，其无需重复提交已审核材料的意见于法无据，本院对此不予采纳。一审法院认定昌江县住建局作出的行政行为主要证据不足于法有据，本院予以确认。本案根据查明的事实，鑫龙公司涉案的项目工程已竣工验收，该工程所建设的房屋已对外销售，根据《中华人民共和国行政诉讼法》第七十四条第一款第一项：”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。”的规定，一审法院认为昌江县住建局作出的行政行为所涉及的项目工程影响到众多业主的利益，以撤销该行政行为将对社会公共利益造成重大损害为由确认该行政行为违法的处理结果于法有据并无不当，本院予以维持。献林公司上诉称昌江县住建局颁发的×××号建筑工程施工许可证违法应当撤销的理由不成立，本院不予支持。
综上所述，一审判决认定基本事实清楚，适用法律正确，判决结果得当，本院应予以维持。上诉人献林公司及上诉人昌江县住建局各自的上诉请求均不成立，本院应予以驳回。依照《中华人民共和国行政诉讼法》第八十九条第一款第（一）项的规定，判决如下：
驳回上诉，维持原判。
二审案件受理费100元，由上诉人海南献林建筑安装工程有限公司与上诉人昌江黎族自治县住房和城乡建设局各自负担50元。
本判决为终审判决。
审判长孔凡勇
审判员张成信
审判员张德雄
二○一七年十一月二十日
法官助理管娜
书记员李伟源
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