海南省海口市中级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼01行终112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92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：确认市公安局龙华分局传唤朱蓉的行政行为违法。
原审裁定认为：朱蓉以市公安局龙华分局的传唤行为侵害了其人身权利，并据此提出请求确认市公安局龙华分局的具体行政行为违法的主张。首先，朱蓉虽起诉市公安局龙华分局和市公安局，但诉请中仅要求市公安局龙华分局承担责任，并未对市公安局提出具体请求；其次，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；最后，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传唤的具体行政行为，又未对其作出复议决定，因此朱蓉起诉市公安局，请求确认其行政行为违法，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92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：《中华人民共和国行政诉讼法》第二十六条第一款规定：”公民、法人或者其他组织直接向人民法院提起诉讼的，作出行政行为的行政机关是被告”。《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”。本案中，朱蓉诉请确认市公安局龙华分局对其进行传唤的行政行为违法，涉案传唤行为系市公安局龙华分局作出的行政行为，因此，市公安局龙华分局为本案适格被告，市公安局不是作出涉案行政行为的行政机关，其被告主体资格不适格，朱蓉将市公安局错列为本案共同被告，经依法释明后仍然不同意变更，应裁定驳回朱蓉对市公安局的起诉。因此，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
书记员江楠
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