海南省海口市中级人民法院
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（2017）琼01行终207号
上诉人（原审被告）海口市琼山区城市管理行政执法局，住所地海口市琼山区府城镇凤翔路104号。
法定代表人罗罡，局长。
委托代理人王立峰，北京德和衡（海口）律师事务所律师。
委托代理人杨安武，该局工作人员。
被上诉人（原审原告）王明汉，男，1972年5月9日出生，汉族，住海口市。
被上诉人（原审原告）王明开，男，1976年5月2日出生，汉族，住海口市。
被上诉人（原审原告）洪荣，女，1970年10月5日出生，汉族，住海口市。
被上诉人（原审原告）吴爱琼，女，1935年3月2日出生，汉族，住海口市。
被上诉人（原审原告）周海珠，女，1980年12月27日出生，汉族，住海口市。
共同委托代理人吴宇,海南大兴天泰律师事务所律师。
共同委托代理人林资,海南大兴天泰律师事务所律师。
上诉人海口市琼山区城市管理行政执法局（以下简称琼山城管局）因与被上诉人王明开、王明汉、洪荣、吴爱琼、周海珠城市管理纠纷一案，不服海口市琼山区人民法院（2017）琼0107行初6号行政判决，向本院提起上诉。本案受理后，依法组成合议庭审理了本案。上诉人琼山城管局的委托代理人王立峰、杨安武，被上诉人王明开、王明汉、洪荣、吴爱琼、周海珠的委托代理人吴宇、林资到庭参加诉讼，现已审理终结。
原审判决查明：王明汉、王明开、洪荣、吴爱琼、周海珠是位于海口市××区号宅基地的使用权人。其于2008年至2009年间在该宅基地上建造了一幢14层的楼房。建筑面积为14323.68平方米。2013年12月18日琼山城管局以该建筑物未取得规划许可擅自建设房屋的行为，违反了《中华人民共和国城乡规划法》第四十条、第六十四条的规定，作出了被诉的”停止违法通知”和”限期改正通知”，此两份通知书未依法向王明汉、王明开、洪荣、吴爱琼、周海珠送达。2015年12月31日王明开与海口市琼山区重点项目推进管理委员会签订了《海口市琼山区红城湖道客片区棚户区（城中村）改造项目征收货币化安置协议》，此时王明汉、王明开、洪荣、吴爱琼、周海珠才得知涉案房屋在2013年12月18日己由琼山城管局当作违法建筑予以处理。为此，王明汉、王明开、洪荣、吴爱琼、周海珠遂提起诉讼。另查,涉案房屋在2015年12月底已被当作被征收的房屋予以拆除。
原审判决认为：该案的争议焦点是：一、王明汉、王明开、洪荣、吴爱琼、周海珠的起诉是否超过了法定的起诉期限。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》第四十一条第一款：”行政机关作出具体行政行为时，未告知公民、法人或者其他组织诉权或者起诉期限的，起诉期限从公民、法人或者其他组织知道或者应当知道诉权或者起诉期限之日起计算，但从知道或者应当知道具体行政行为内容之日起最长不得超过2年。”的规定，在本案中，琼山城管局没有依法向王明汉、王明开、洪荣、吴爱琼、周海珠送达被诉的”停止违法通知”和”限期改正通知”，更没有向王明汉、王明开、洪荣、吴爱琼、周海珠告知诉权和起诉期限。王明汉、王明开、洪荣、吴爱琼、周海珠是在2015年12月31日与海口市琼山区重点项目推进管理委员会签订《海口市琼山区红城湖道客片区棚户区（城中村）改造项目征收货币化安置协议》时，才被告知涉案的房屋在2013年12月18日己被琼山城管局当作违法建筑予以处理。据此，可认定王明汉、王明开、洪荣、吴爱琼、周海珠知道或者应当知道被诉行政行为内容之日为2015年12月31日，依据以上司法解释的规定，王明汉、王明开、洪荣、吴爱琼、周海珠的起诉期限最长不得超过2年，即2015年12月31日到2017年12月31日，也就是说王明汉、王明开、洪荣、吴爱琼、周海珠最迟应于2017年12月31日前向法院提起诉讼。而王明汉、王明开、洪荣、吴爱琼、周海珠于2016年12月29日向原审法院提起诉讼，故可认为王明汉、王明开、洪荣、吴爱琼、周海珠的起诉未超过法定的起诉期限，琼山城管局主张王明汉、王明开、洪荣、吴爱琼、周海珠的起诉超过了法定的起诉期限无事实和法律依据，原审法院不予采纳。二、琼山城管局作出的被诉行政行为是否合法。在本案中，琼山城管局对王明汉、王明开、洪荣、吴爱琼、周海珠作出的”停止违法通知”和”限期改正通知”，从行政行为的属性分析，应当属于行政处罚行为，而不是行政强制行为。琼山城管局在本案中没有对王明汉、王明开、洪荣、吴爱琼、周海珠的违法建设行为进行调查取证,没有提供王明汉、王明开、洪荣、吴爱琼、周海珠违法建设的证据。根据《中华人民共和国行政处罚法》第三十条：”公民、法人或者其他组织违反行政管理秩序的行为，依法应当给予行政处罚的，行政机关必须查明事实；违法事实不清的，不得给予行政处罚。”的规定，可认为琼山城管局作出的被诉行政行为违反了该法条的规定，应确认为程序违法。又根据《中华人民共和国行政处罚法》第三十一条：”行政机关在作出行政处罚决定之前，应当告知当事人作出行政处罚决定的事实、理由及依据，并告知当事人依法享有的权利”的规定，在本案中，虽然琼山城管局没有对王明汉、王明开、洪荣、吴爱琼、周海珠作出行政处罚决定，但其作出的”停止违法通知”和”限期改正通知”属于行政处罚行为，告知程序是行政处罚的必经程序，琼山城管局未依法履行告知程序，则属违反法定程序。综上所述，琼山城管局作出的被诉行政行为违反法定程序，依法应予撤销。鉴于本案不具有可撤销的内容，故可确认其作出的行政行为违法。依照《中华人民共和国行政诉讼法》第七十四条第二款第（一）项之规定，判决确认海口市琼山区城市管理行政执法局作出的海管法停字Q2[2013]第A3065号《责令停止违法（章）行为通知书》和海管法停字Q2[2013]第A3065号《责令限期改正通知书》违法。案件受理费50元，由海口市琼山区城市管理行政执法局负担。
上诉人琼山城管局诉称：原审判决认定事实不清，认定被诉行政行为的性质错误，本案应为行政强制案件。根据《行政处罚法》、《行政强制法》、《海口市城市管理相对集中行政处罚权管理暂行办法》、《海南省查处违法建筑若干规定》等法律、法规、规章的规定，城管部门具有查处违法建筑的职权，拆除违法建筑，按照目前的理论与实践，是行政强制行为，而非行政处罚行为。查处、拆除违法建筑的行政强制行为一般包括三个阶段，即下发限期拆除通知或决定、作出强制拆除决定和最后实施强制拆除。上诉人基于被上诉人无法提供合法报建手续，其所建设的建筑系违法建筑的情况下，于2013年12月18日作出的海管法停字Q2[2013]第A3065号《责令停止违法（章）行为通知书》和海管法停字Q2[2013]第A3065号《责令限期改正通知书》，是属于查处、限期拆除的阶段，而涉案建筑在区政府的组织下于2015年12月拆除，系实施行政强制拆除阶段，至此，行政强制行为结束。所以，就被诉行政行为的属性上说，应属于行政强制行为。一审法院错误认定本案被诉行政行为是行政处罚，系认定行为性质错误。原审判决认定被上诉人的起诉未超过起诉期限错误，被上诉人的起诉已超过诉讼时效，其起诉应予驳回。鉴于涉案建筑于2015年12月被拆除，被上诉人在原审起诉状中，自认其在当时已经知道违法建筑被拆除的事实，在客观上，在当时，区政府组织这么大的行动，涉及自己的重大权益，被上诉人也不可能不知道。根据《行政诉讼法》第四十六条：公民、法人或者其他组织直接向人民法院提起诉讼的，应当自知道或者应当知道作出行政行为之日起六个月内提出。被上诉人于2015年12月已经知道房屋予以拆除的事实，其于2016年12月29日向一审法院起诉已经超过起诉期限，应当驳回起诉。原审法院援引《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》第四十一条第一款的解释，以上诉人未告知被上诉人诉权和起诉期限为由，故认为被上诉人的起诉期限最长为两年，被上诉人只要在此期限内起诉均未超过起诉期限。这一理解与认定错误，即使根据该款的规定，被上诉人自2015年底就知道行政行为的内容，其知道行政强制拆除行为，该行为就是行政强制行为的结果行为，而作为公民，其应当知道诉权为行政作为作出之日起6个月内行使。故原审法院的这一认定与处理有误。被上诉人的起诉已经超过法定期限，应当予以驳回。综上，请求二审法院查清事实，撤销一审行政判决，依法裁定驳回被上诉人起诉。
被上诉人王明汉、王明开、洪荣、吴爱琼、周海珠辩称：一、琼山城管局确认被上诉人的房屋为违章建筑的处罚行为，严重违反法律程序的规定。（一）《行政处罚法》第二十三条规定：行政机关实施行政处罚时，应当责令当事人改正或者限期改正违法行为。琼山城管局作出的《责令停止违法行为通知书》及《责令限期改正通知书》没有依法向被上诉人送达，被上诉人不知有上述两个通知书。琼山城管局作出的两个通知书通知对象不明确，没有送达对象，行政执行人员也没有写，两个通知书中也没有告知被上诉人有陈述和申辩权利，也没有告知诉权等内容，均违反了《行政处罚法》的具体规定，其中第三十二条规定：当事人有权进行陈述和申辩；第三十六条规定：行政机关调查时，执法人员不少于两人；第四十一条规定：行政机关及其执法人员在作出行政处罚决定之前，不依照本法第三十一、三十二条的规定向当事人告知给予行政处罚的事实、理由和依据，或者拒绝听取当事人的陈述、申辩，行政处罚决定不能成立。(二)《行政处罚法》第三十八条、第三十九条的规定，其中第三十八条规定，行政机关的调查完后应当根据情况做出《行政处罚决定书》。第三十九条规定，《行政处罚决定书》应当载明以下事项：(一)当事人的姓名或者名称、地址；(二)违反法律、法规或者规章的事实和证据；(三)行政处罚的种类和依据；(四)行政处罚的履行方式和期限；(五)不服行政处罚决定，申请行政复议或者提起行政诉讼的途径和期限；(六)作出行政处罚决定的行政机关名称和作出决定的日期。另外第四十条规定，作出《行政处罚决定书》后应当宣告后当场送达当事人，当事人不在场的，应依法送达当事人。但本案中，琼山城管局均没有在调查后作出《行政处罚决定书》，这是最严重违反法律程序的行政行为。根据《行政处罚法》第三条第二款的规定：没有法定依据或不遵守法定程序的，行政处罚无效。二、根据法院调取的《海口市琼山区红城湖道客片区棚户区（城中村）改造项目征收货币化安置协议》，该协议签订的时间是2015年12月8日，本案中的房屋是在该协议签订后才拆除的，房屋的拆除并非行政强制拆除，被上诉人对琼山区人民政府所作出的棚户区改造拆迁是没有异议的。三、本案的起诉没有超过起诉期限。《行政诉讼法》第四十六条规定：公民、法人或者其他组织直接向人民法院提起诉讼的，应当自知道或者应当知道作出行政行为之日起六个月内提出。法律另有规定的除外。而本案中，琼山城管局自始至终没有做出《行政处罚决定书》，并向被上诉人送达。故琼山城管局抗辩适用六个月的时效期限，是对法律的理解错误。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（法释〔2000〕8号）第四十一条第一款规定：行政机关作出具体行政行为时，未告知公民、法人或者其他组织诉权或者起诉期限的，起诉期限从公民、法人或者其他组织知道或者应当知道诉权或者起诉期限之日起计算，但从知道或者应当知道具体行政行为内容之日起最长不得超过两年。被上诉人只是在2015年年底政府进行棚改时才被告知该房屋已被琼山城管局确认为违建。而事实上，琼山城管局一直没有做出行政处罚，因此本案应适用两年的诉讼时效规定。被上诉人并没有丧失行政诉讼期限。综上所述，琼山城管局所作出的行政行为严重违反《行政处罚法》的规定，依法应确认琼山城管局对建筑物所作的行政处罚行为违法。一审法院判决认定事实清楚，适用法律正确，判决结果公正。琼山城管局的上诉没有事实与法律依据，依法应予以驳回。
二审期间，上诉人琼山城管局和被上诉人王明汉、王明开、洪荣、吴爱琼、周海珠均未提交新证据。
本院经审理查明的事实与一审判决认定的事实基本一致。
本院认为：一、关于被上诉人王明汉、王明开、洪荣、吴爱琼、周海珠的起诉是否超过法定起诉期限的问题。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》第四十一条第一款：”行政机关作出具体行政行为时，未告知公民、法人或者其他组织诉权或者起诉期限的，起诉期限从公民、法人或者其他组织知道或者应当知道诉权或者起诉期限之日起计算，但从知道或者应当知道具体行政行为内容之日起最长不得超过2年”的规定，从本案的证据可知，上诉人琼山城管局在作出被诉”停止违法行为通知”和”限期改正通知”后，并未依法向被上诉人送达，也未告知被上诉人诉权和起诉期限。被上诉人是在2015年12月31日与海口市琼山区重点项目推进管理委员会签订《海口市琼山区红城湖道客片区棚户区（城中村）改造项目征收货币化安置协议》时，才被告知涉案的房屋在2013年12月18日己被琼山城管局当作违法建筑予以处理。据此，可认定被上诉人知道或者应当知道被诉行政行为内容之日为2015年12月31日，依据以上司法解释的规定，被上诉人于2016年12月29日向原审法院提起诉讼，未超过2年的起诉期限。上诉人琼山城管局主张被上诉人的起诉超过了法定的起诉期限无事实和法律依据，本院不予采纳。
二、关于上诉人琼山城管局作出的被诉行政行为是否合法的问题。行政机关作出对公民有重大影响的行政行为时，应依法保证行政管理相对人、利害关系人的知情权、参与权与救济权，给予当事人陈述、申辩的权利。在本案中，上诉人琼山城管局对被上诉人作出”停止违法行为通知”和”限期改正通知”后，未依法向被上诉人送达，且也未告知被上诉人依法享有的相关权利。上诉人琼山城管局作出对当事人有重大影响的行政行为，未听取其陈述、申辩，违反正当程序原则，程序违法,依法应予撤销。因本案涉案房屋被当作被征收的房屋已拆除，行政行为不具有可撤销的内容，故确认其作出的行政行为违法。原审判决确认上诉人琼山城管局作出的海管法停字Q2[2013]第A3065号《责令停止违法（章）行为通知书》和海管法停字Q2[2013]第A3065号《责令限期改正通知书》违法，并无不当。
综上，上诉人琼山城管局的上诉不成立，本院依法不予支持。原审判决认定事实清楚，适用法律正确，本院依法应予维持。依照《中华人民共和国行政诉讼法》八十九条第一款第（一）项之规定，判决如下：
驳回上诉，维持原判。
本案二审案件受理费人民币50元，由海口市琼山区城市管理行政执法局负担。
本判决为终审判决。
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审判长黄勇
审判员张珂瑜
审判员吴茜
书记员杨聪
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