海南省海口市中级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼01行终146号
上诉人（原审原告）海南仁望旅游投资控股有限公司,住所地海口市滨海大道南洋大厦1008号。
负责人宋鸿鹏，该公司经理。
委托代理人张云峰，青海汇元律师事务所律师。
被上诉人（原审被告）海南省国家税务局,住所地海口市龙昆北路10号。
法定代表人于智广，局长。
委托代理人孟冬青，该局政策法规处主任科员。
上诉人海南仁望旅游投资控股有限公司（以下简称仁望公司）因与被上诉人海南省国家税务局（以下简称省国税局）行政复议不予受理决定纠纷一案，不服海口市美兰区人民法院（2016）琼0108行初63号行政判决，向本院提起上诉。本院依法组成合议庭，对本案进行了审理，上诉人仁望公司的委托代理人张云峰,被上诉人省国税局的委托代理人孟冬青到庭参加诉讼，现已审理终结。
原审判决查明：2015年4月15日，海南省国家税务局第五稽查局向仁望公司作出琼国税五稽处【2015】30号《税务处理决定书》，认定仁望公司存在”2006年度实现股权拍卖收入2.15亿元，股权投资成本6.996万元（由西宁恒邦农业有限责任公司98%股权的初始成本196万元和股权置换支付的补价6.800万元组成），未申报缴纳企业所得税”的违法事实，认为仁望公司”虚假申报2006年度企业所得税造成少缴税款的行为已构成偷税”，决定要求仁望公司”应补缴2006年度股权转让企业所得税2175.6万元”，同时”依法加收滞纳金”，限仁望公司”自收到决定书之日起15日内到海口市国家税务局将上述税款及滞纳金缴纳入库，并进行相关账务调整。逾期未缴，将依照《中华人民共和国税务征收管理法》第四十条规定强制执行”。此外还告知仁望公司”若同我局（所）在纳税上有争议，应自收到决定之日起六十日内依照决定缴纳税款及滞纳金，或者提供相应的担保，然后可依法向海南省国家税务局申请行政复议”。后仁望公司不服决定，向海南省国家税务局申请行政复议。2015年7月23日，省国税局以仁望公司”未缴纳税款、滞纳金或提供相应的担保”为由，作出琼国税复不受字〔2015〕第1号《不予受理决定书》，”根据《中华人民共和国税收征收管理法》第八十八条第一款和《税务行政复议规则》（国家税务总局令[2010]第21号）第三十三条第一款、第二款的规定”，认为仁望公司”未缴纳税款、滞纳金或提供相应的担保，不符合受理的条件”，决定”不予受理”仁望公司的复议申请。告知仁望公司若不服该决定，”可以根据《中华人民共和国行政复议法》第十九条的规定，在收到本决定书之日起15日内向人民法院提起行政诉讼。”并通过邮寄送达给仁望公司。仁望公司因不服省国税局作出的复议决定，遂起诉。2015年9月1日，海南省国家税务局第五稽查局作一份《情况说明》，”我局向海南仁望旅游投资控股有限公司送达《税务处理决定书》（琼国税稽三处[2012]6号）后，截止到2015年9月1日止”，确认仁望公司”未缴纳处理决定书要求补缴的税款及相应的滞纳金，也未提供相应的纳税担保”。仁望公司法定代表人李三友于2012年4月5日辞世。2012年5月30日，仁望公司召开股东会议，作出在暂不变更公司法定代表人情况下，由宋鸿鹏作为该司经理和负责人，全权处理公司事务，代表公司行使相关起诉、应诉的决议。
原审判决认为：一、关于省国税局作出的行政复议决定程序是否合法的问题。省国税局收到仁望公司的行政复议申请后，在法定期限内作出不予受理的决定并依法向仁望公司送达，其程序符合《中华人民共和国行政复议法》第二十二条、第二十三条第一款的规定，故省国税局作出的琼国税复不受字〔2015〕第1号《不予受理决定书》程序合法。二、关于《不予受理决定书》认定的事实是否清楚，适用法律是否准确的问题。《中华人民共和国税收征收管理法》第五十六条第一款规定”纳税人、扣缴义务人、纳税担保人同税务机关在纳税上发生争议时，必须先依照法律、行政法规的规定缴纳或者解缴税款及滞纳金，然后可以在收到税务机关填发的缴款凭证之日起六十日内向上一级税务机关申请复议。上一级税务机关应当自收到复议申请之日起六十日内作出复议决定。对复议决定不服的，可以在接到复议决定书之日起十五日内向人民法院起诉”。本案涉及仁望公司是否是所得税的征税对象或是否存在偷逃税款的行为等问题，均系因征税行为所引发的争议，依照法律、行政法规的规定缴纳或者解缴税款及滞纳金是涉税当事人申请复议的前提条件，因此，省国税局作出不予受理决定，认定事实清楚，符合《税务行政复议规则》第三十三条第一款”申请人对本规则第十四条第（一）项规定的行为不服的，应当先向行政复议机关申请行政复议......”、第二款”申请人按照前款规定申请行政复议的，必须依照税务机关根据法律、法规确定的税额、期限，先行缴纳或者解缴税款和滞纳金，或者提供相应的担保，才可以在缴清税款和滞纳金以后或者所提供的担保得到作出具体行政行为的税务机关确认之日起60日内提出行政复议申请”的规定,适用法律正确。仁望公司认为，其本身不是所得税的征税对象，没有发生偷逃税款的行为，省国税局不予受理属于行政不作为，作出不予受理的决定属于认定事实不清，适用法律错误，应予以撤销的诉讼请求，理由不充分，于法无据，该院不予支持。综上所述，省国税局作出的琼国税复不受字〔2015〕第1号《不予受理决定书》，认定事实清楚、适用法律法规正确。依照《中华人民共和国行政诉讼法》第六十九条的规定，判决驳回海南仁望旅游投资控股有限公司的诉讼请求。案件受理费人民币50元，由海南仁望旅游投资控股有限公司负担。
上诉人仁望公司上诉称：一、一审判决对上诉人提交的证据3琼国税五稽不罚（2015）1号《不予税务行政处罚决定书》；证据4青海省高级人民法院（2015）青执异字第8号《执行裁定书》均不予采信，属认定事实不清，采信证据错误。一审庭审中，被上诉人代理人当庭承认向上诉人代理人送达了未加盖公章的《不予税务行政处罚决定书》。而一审判决以该证据未加盖公章，也没有证据证明其来源，认为其不能作为定案依据，显为不当。证据3是被上诉人当庭自认向上诉人送达的证据，同时也证明其来源即为被上诉人，该份证据印证了被上诉人行为性质为行政处罚，印证了上诉人行政诉讼理由成立；而上诉人提供的证据4，即民事裁定书直接证明在被上诉人作出《税务处理行政书》时，上诉人股权转让收入尚未确定，上诉人尚不发生纳税申报义务。而此后最高法院作出的终审裁定，恰好证明上诉人实际发生亏损1.7亿元余元，上诉人不存在申报所得税的事由，也不构成偷税，被上诉人的涉案行政决定只能认定为是变相的行政处罚。民事裁定书是与本案存在直接关联性。一审判决以其无关联性而不予采信明显不当。二、一审判决对被上诉人作出的《税务处理决定书》（琼国税五稽处（2015）30号）引发的争议认定为征税争议，属于定性错误。上诉人已经提供充分证据证实因股权转让发生重大亏损，不存在所得税缴纳义务，税务处理决定本质上就是一种以征代罚的行政处罚，上诉人有权在不预缴虚构的税款，或对虚构的税款提供担保的情形下提起行政复议；而被上诉人不应以预缴税款或担保作为行政复议前置条件。一审判决适用法律不当。综上，请求二审撤销一审判决，改判撤销被上诉人作出的琼国税复不受字（2015）1号《不予受理决定书》；判令被上诉人依法受理原告的行政复议申请。
被上诉人省国税局答辩称：一、省国税局的不予受理决定事实清楚、适用法律法规正确、程序合法。（一）上诉人与海南省国家税务局第五稽查局（以下简称第五稽查局）之间的争议是纳税争议。《中华人民共和国税收征收管理法实施细则》第一百条规定，纳税争议其实就是就征税行为发生的争议。《税务行政复议规则》第十四条进一步明确，征税行为包含（但不限于）征收税款和加收滞纳金。（二）《中华人民共和国税收征收管理法》第八十八条第一款和《税务行政复议规则》第三十三条规定，纳税争议必须要先缴纳税款、滞纳金才或提供相应担保才可以申请复议。上诉人未先缴清税款及滞纳金或者提供相应的担保，不符合复议受理的条件。（三）省国税局作出的不予受理决定是合法的。二、一审判决认定事实清楚。（一）《不予税务行政处罚决定书》和《执行裁定书》与本案无关联性，不能采信。本案是要对省国税局的不予受理决定的合法性进行审查。（二）省国税局已履行举证责任。省国税局已向一审法院提交了作出的不予受理决定的证据和依据。三、一审判决认定上诉人与第五稽查局之间的争议是纳税争议，定性准确。上诉人一方面承认其与第五稽查局之间的争议是就征税行为发生的争议，另一方面又将因征税行为发生的争议分为两类：纳税争议、行政处罚。按复议法的规定，省国税局要先对上诉人的复议请求进行审查，如果其符合受理条件，则决定受理。受理后，省国税局要对第五稽查局的征税行为进行全面审查，看上诉人是否依法真正具有纳税义务。复议机关若在决定是否受理之前就要确定具体行政行为是否合法，显然与现行复议法的规定相违背。综上，请求法院判决驳回上诉，维持一审判决。
上诉人提起上诉后，原审法院已将原审判决所列证据随卷移送本院。二审期间，各方当事人均未提交新证据。
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、关于海南省国家税务局第五稽查局作出的30号《税务处理决定书》是征税行为还是行政处罚问题。《税务行政复议规则》第十四条（一）项明确规定了征税行为包括征收税款、加收滞纳金。该条第（五）项规定了涉税行政处罚行为包括罚款、没收财物和违法所得、停止出口退税权三种行为。本案中30号《税务处理决定书》限期仁望公司补缴税款，并依法加收滞纳金，属于《税务行政复议规则》第十四条第（一）规定的征税行为。仁望公司认为30号《税务处理决定书》是税务行政处罚并以此作为上诉的理由不成立，本院不予支持。
二、关于省国税局作出的《不予受理决定书》是否合法问题。根据《中华人民共和国税收征收管理法》第八十八条一款规定：纳税人、扣缴义务人、纳税担保人同税务机关在纳税上发生争议时，必须先依照税务机关的纳税决定缴纳或者解缴税款及滞纳金或者提供相应的担保，然后可以依法申请行政复议；对行政复议决定不服的，可以依法向人民法院起诉。《税务行政复议规则》第三十三条也规定了申请人对征税行为不服的，应当先向行政复议机关申请行政复议。申请行政复议之前，必须先行缴纳或者解缴税款和滞纳金，或者提供相应的担保。本案因征税行为引发了争议属于《税收征收管理法》第八十八条所规定的纳税争议，仁望公司在未解缴税款及滞纳金或者提供相应的担保之前，向省国税局提起行政复议，不符合法律规定，省国税局收到仁望公司的行政复议申请后，依据《中华人民共和国税收征收管理法》在法定期限内依据《中华人民共和国行政复议法》作出不予受理的决定并依法向仁望公司送达，认定事实清楚、适用法律正确、程序合法。
综上，仁望公司上诉不成立，本院依法不予支持。一审判决认定事实清楚，适用法律正确，本院依法予以维持。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。
本案二审受理费人民币50元，由上诉人海南仁望旅游投资控股有限公司负担。
本判决为终审判决。
审判长黄勇
审判员钟山
审判员吴茜
书记员杨聪
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