海南省海口市中级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼01行终113号
上诉人（原审原告）：朱蓉，女，1972年2月16日出生，汉族，住海口市。
被上诉人（原审被告）：海口市公安局，住所地：海口市秀英区长滨东三街。
法定代表人：李向明，该局局长。
委托代理人：黄威，该局法制支队大队长。
委托代理人：邹攀登，该局法制支队副主任科员。
原审被告：海口市公安局龙华分局，住所地：海口市龙华区南沙路41号。
法定代表人：龙健，该局局长。
委托代理人：张楠楠，该局法制科副科长。
委托代理人：李爱平，该局法制科科员。
上诉人朱蓉因与被上诉人海口市公安局（以下简称市公安局）、原审被告海口市公安局龙华分局（以下简称市公安局龙华分局）确认行政行为违法一案，不服海口市龙华区人民法院（2016）琼0106行初91号行政裁定，向本院提出上诉。本院于2017年5月9日立案后，依法组成合议庭对本案进行审理，本案现已审理终结。
2016年5月9日，因报案人报案及现场指认，市公安局龙华分局将朱蓉口头传唤至金贸派出所进行询问调查。
朱蓉于2016年10月8日向原审法院提起本案诉讼，诉讼请求：1、判令市公安局龙华分局和市公安局赔偿因违法行政行为造成朱蓉经济损失6000元，精神损失3000元；2、判令市公安局龙华分局和市公安局为朱蓉消除影响，恢复名誉，在海南日报上刊登对朱蓉的致歉信。
原审裁定认为：朱蓉以市公安局龙华分局和市公安局的违法行政行为对其造成损害为由，向市公安局龙华分局和市公安局提出了赔偿请求。本案中，市公安局向九三学社海南省委员会发出的海公函[2016]111号《关于通报朱蓉律师反映其被非法拘禁核查情况的函》，是国家机关之间的工作回函，并非向朱蓉本人作出的对其产生实体权利义务影响的决定，亦非复议决定，且该回函仅向特定部门作出，并不产生公示效力；另外，朱蓉虽在庭审中提出其曾向市公安局提出过复议申请的主张，但未提供立案材料予以证明，故原审法院对该主张无法确认。退一步说，即使市公安局受理了朱蓉的复议申请，但根据《中华人民共和国行政诉讼法》第二十六条第三款的规定，”复议机关在法定期限内未作出复议决定，公民、法人或者其他组织起诉原行政行为的，作出原行政行为的行政机关是被告”。综上，市公安局既未对朱蓉作出影响其实体权利义务的具体行政行为，又未对其作出复议决定，因此朱蓉起诉市公安局，认为其存在违法行为，进而提出赔偿请求，属错列被告，经庭审释明，朱蓉拒绝变更，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（三）项规定，”有下列情形之一，已经立案的，应当裁定驳回起诉：（三）错列被告且拒绝变更的”。故朱蓉起诉市公安局主体不适格，应予驳回。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（三）项的规定，裁定如下：驳回朱蓉对市公安局的起诉。
朱蓉不服原审裁定，向本院提出上诉称：一、一审裁定认定的基本事实不清。2016年5月24日，市公安局作出《关于通报朱蓉律师反映其被非法拘禁核查情况的函》属于行政行为。首先，从该函的标题看，标题指名道姓，特定的指定对象是朱蓉，很明显，这份发函实质上针对的特定对象是朱蓉；其次，从该函正文内容看，有市公安局确定并认可其所辖的市公安局龙华分局对朱蓉采取的行政强制措施的特定具体事项；最后，在该函的尾部注明了抄送对象是市公安局。可见，市公安局没有依法行政，所以该函无论从内容、形式来看都是明显违背《国家行政机关公文处理办法》规定的。该函实质就是对市公安局龙华分局的行政强制措施进行确定及认可的行为，已经完全形成了行政行为的构成要件。一审裁定认定该函不属于可诉的行政行为是错误的。市公安局以上述函确定并认可市公安局龙华分局对朱蓉采取的行政强制措施之后，市公安局于2016年5月30日上午在海口市金龙路原海口市公安局办公大楼的七楼办公室依职权主动履行法定职责，对朱蓉做了一份关于朱蓉被市公安局龙华分局关押及搜查过程的笔录，收下了朱蓉签名的书面申请调查材料。2016年6月12日，市公安局的工作人员再次签收了朱蓉补交的6份相关材料，并向朱蓉出示签名的收条，之后市公安局便再无下文。市公安局作为具有对外公信力的政府重要执法部门，以上事实足以构成行政不作为。所以一审裁定认定朱蓉未曾向市公安局提交过调查申请材料是错误的。基于以上事实，市公安局的行为都对朱蓉的实体权利义务造成影响。二、一审裁定适用法律错误。朱蓉作为一名普通的社会公民未能感受到市公安局作为政府重要执法部门所应秉持的公平正义的执法理念。朱蓉是一名遵纪守法且具有良好品行的社会公民，在遭受市公安局的下属部门莫名的关押、搜查之后，市公安局作为其主管部门，非但没有在查清事实真相的基础上问责有关责任人员，反而在未与朱蓉进行接触调查的情形下违背事实作出上述函，单方肯定与认可其下属部门对朱蓉采取的行政强制措施，并向外界进行了宣告。市公安局属于本案一审的适格被告。一审裁定适用《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（三）项规定，属于适用法律错误。综上，特提出上诉，请求判令撤销（2016）琼0106行初91号行政裁定，依法改判或发回原审法院重审。
被上诉人市公安局未答辩。
原审被告市公安局龙华分局未答辩。
本院认为：《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》第二十三条第一款规定：”原告所起诉的被告不适格，人民法院应当告知原告变更被告；原告不同意变更的，裁定驳回起诉”。朱蓉诉市公安局龙华分局、市公安局确认行政行为违法一案，朱蓉错列市公安局为共同被告，经释明后仍然不同意变更，原审法院以（2016）琼0106行初91号行政裁定驳回朱蓉对市公安局的起诉，本院已作出（2017）琼01行终112号行政裁定，维持原审法院的上述裁定。朱蓉系在请求确认涉案行政行为违法的基础上同时提起本案行政赔偿诉讼，故亦应以市公安局龙华分局为被告，朱蓉将市公安局错列为本案共同被告，经原审法院释明后仍然不同意变更，原审法院裁定驳回朱蓉对市公安局的起诉并无不当。综上所述，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，裁定如下：
驳回上诉，维持原审裁定。
本案不收取案件受理费。
本裁定为终审裁定。
审判长潘娜
审判员何芳
审判员吴茜
法官助理文静
法官助理文静
书记员江楠
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caseinfo=JSON.stringify({\"法院ID\":\"842\",\"案件基本情况段原文\":\"\",\"附加原文\":\"\",\"审判程序\":\"一审\",\"案号\":\"（2017）黑1181刑初82号\",\"不公开理由\":\"\",\"法院地市\":\"黑河市\",\"法院省份\":\"黑龙江\",\"文本首部段落原文\":\"\",\"法院区域\":\"\",\"文书ID\":\"9fd27406-776e-4c10-8334-a81c010df664\",\"案件名称\":\"被告人蔡金磊交通肇事一审刑事判决书\",\"法院名称\":\"北安市人民法院\",\"裁判要旨段原文\":\"\",\"法院区县\":\"北安市\",\"补正文书\":\"2\",\"DocContent\":\"\",\"文书全文类型\":\"1\",\"诉讼记录段原文\":\"北安市人民检察院以黑北检公诉刑诉［2017］79号起诉书指控被告人蔡金磊犯交通肇事罪。于2017年8月22日向本院提起公诉，本院受理后，依法组成合议庭，公开开庭审理了本案。北安市人民检察院指派检察员杨晓丽出庭支持公诉，被告人蔡金磊到庭参加诉讼。现已审理终结\",\"判决结果段原文\":\"\",\"文本尾部原文\":\"\",\"上传日期\":\"\\\/Date(1509379200000)\\\/\",\"案件类型\":\"1\",\"诉讼参与人信息部分原文\":\"\",\"文书类型\":null,\"裁判日期\":null,\"结案方式\":null,\"效力层级\":null});$(document).attr(\"title\",\"被告人蔡金磊交通肇事一审刑事判决书\");$(\"#tdSource\").html(\"被告人蔡金磊交通肇事一审刑事判决书
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value: \"蔡金磊\" }],LegalBase:
[{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。
\'}]},{法规名称:\'《中华人民共和国刑事诉讼法（2012年）》\',Items:[{法条名称:\'第二百七十七条第一款\',法条内容:\'
第二百七十七条
下列公诉案件，犯罪嫌疑人、被告人真诚悔罪，通过向被害人赔偿损失、赔礼道歉等方式获得被害人谅解，被害人自愿和解的，双方当事人可以和解：
（一）因民间纠纷引起，涉嫌刑法分则第四章、第五章规定的犯罪案件，可能判处三年有期徒刑以下刑罚的；
（二）除渎职犯罪以外的可能判处七年有期徒刑以下刑罚的过失犯罪案件。
犯罪嫌疑人、被告人在五年以内曾经故意犯罪的，不适用本章规定的程序。
\'},{法条名称:\'第二百七十九条\',法条内容:\' 第二百七十九条
对于达成和解协议的案件，公安机关可以向人民检察院提出从宽处理的建议。人民检察院可以向人民法院提出从宽处罚的建议；对于犯罪情节轻微，不需要判处刑罚的，可以作出不起诉的决定。人民法院可以依法对被告人从宽处罚。
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