海南省高级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼行终1641号
海南省高级人民法院
行政判决书
（2017）琼行终1641号
上诉人（原审原告）邢恩兰，女，1969年3月3日出生，汉族，住海南省三亚市。
委托代理人陈太真，广东三正律师事务所律师。
被上诉人（原审被告）海南省人民政府，住所地海南省海口市国兴大道9号海南省人民政府办公大楼。
法定代表人沈晓明，省长。
委托代理人高冰雁，海南省法制办公室工作人员。
上诉人邢恩兰因其诉被上诉人海南省人民政府（以下简称海南省政府）不履行受理行政复议申请法定职责一案，不服海南省海口市中级人民法院（2017）琼01行初109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23日公开开庭审理了本案，上诉人邢恩兰及其委托代理人陈太真，被上诉人海南省政府的委托代理人高冰雁到庭参加诉讼。本案现已审理终结，并当庭宣判。
2016年，三亚人民市政府(以下简称三亚市政府)陆续拆除东岸村村民或住民自建房屋。邢恩兰于2016年11月16日向海南省政府提出行政复议申请，海南省政府于2016年11月23日作出琼府复通〔2016〕24号《补正行政复议申请通知书》（以下简称《补正通知书》），告知邢恩兰明确复议请求并提供相关材料。2016年12月8日，海南省政府口头告知邢恩兰，因其未能在法定期限（5个工作日）内补正申请材料，视为放弃行政复议申请。邢恩兰不服，诉至原审法院，请求：判令海南省政府履行法定职责，依法受理邢恩兰对三亚市政府提出的行政复议申请。
原审查明，2016年11月16日，邢恩兰向海南省政府提交行政复议申请书，请求：1、撤销三亚市政府征收邢恩兰位于东岸村委会土地范围的家庭住宅之行政行为。2、依法审查三亚市政府作出的《关于东岸村棚户区改造项目房屋征收决定》[三府（2015）185号文]、《东岸村棚户区改造项目拆迁补偿安置方案》[三府（2015）270号文]之合法性。2016年11月23日，海南省政府向邢恩兰作出《补正通知书》，通知称，经审查，邢恩兰的行政复议申请存在以下问题：”1.行政复议请求不具体或不符合《中华人民共和国行政复议法》（以下简称《行政复议法》）的规定。（1）复议请求第一项的请求事项不具体。征收程序中涉及多个行政行为，你应明确请求撤销的具体行政行为及其载体，并向本机关提供相应文本。（2）复议请求第二项不符合《行政复议法》的规定。该项请求涉及的185号决定和270号方案系被申请人三亚市政府作出的具体行政行为，而非《行政复议法》第七条所指的可以在对具体行政行为申请行政复议时，一并向行政复议机关提出审查申请的规定。你请求对其合法性进行审查，不符合法律规定。你若对185号决定、270号方案有异议，可以分别向本机关申请行政复议，并依法提供相应材料。2.你应提供被征收房屋的合法产权证明，以及个人户籍登记簿。”通知中还告知邢恩兰”于5个工作日内补正申请材料。......无正当理由逾期不补正的，视为放弃行政复议申请。”海南省政府于2016年11月28日向邢恩兰的委托代理律师送达了《补正通知书》。邢恩兰于2016年12月2日向海南省政府提交了《关于邢恩兰向海南省人民政府提出行政复议申请的补正说明》（以下简称《补正说明》），补正行政复议请求为：”请求撤销三亚市政府征收邢恩兰位于东岸村委会土地范围的家庭住宅（拆迁编号：13-51）的具体行政行为”，其他复议请求删除。邢恩兰在说明中还称”征收土地属性为集体所有，但三亚市政府历来未履行法定职责予以土地确权登记，更无房屋产权登记。所谓房屋合法产权证明并非提起行政复议之法定条件，且申请人已经提供个人身份证，依法亦无须提供个人户籍登记。”2016年12月8日，海南省政府口头告知邢恩兰的代理律师，因邢恩兰未能在法定期限内补正申请材料，视为邢恩兰放弃行政复议申请。邢恩兰不服，遂成讼。
原审另查明，2016年6月6日，邢恩兰与涉案三亚市东岸村委会棚户区改造项目的部分被拆迁户等15人向三亚市中级人民法院（以下简称三亚中院）提起行政诉讼，诉讼请求为判决撤销三亚市政府作出的三府[2015]185号《关于东岸村棚户区改造项目房屋征收决定》，三亚中院于2017年4月5日作出（2016）琼01行初339号行政判决书。另外，还有部分被拆迁户针对涉案申请复议的事项直接向三亚中院起诉。
原审认为，《中华人民共和国行政复议法实施条例》（以下简称《行政复议法实施条例》）第二十九条规定：”行政复议申请材料不齐全或者表述不清楚的，行政复议机构可以自收到该行政复议申请之日起5日内书面通知申请人补正。补正通知应当载明需要补正的事项和合理的补正期限。无正当理由逾期不补正的，视为申请人放弃行政复议申请。”本案中，邢恩兰向海南省政府提出复议申请，海南省政府经审查后，向邢恩兰发出《补正通知书》，明确告知邢恩兰第一项复议申请的请求事项不具体，要求其明确请求撤销的具体行政行为及其载体，并提供相应文本。同时告知邢恩兰第二项复议申请针对的是三亚市政府作出185号决定和270号方案的具体行政行为，不属于《行政复议法》第七条所指的可以在对具体行政行为申请行政复议时，一并提出审查申请的规定，并告知邢恩兰如对185号决定和270号方案有异议，可另行申请行政复议。邢恩兰接到《补正通知书》后，虽然在指定期限内提交了《补正说明》，但该《补正说明》仅是删除了原第二项复议申请，对于海南省政府要求明确的第一项复议申请并未按要求予以明确，亦未提供海南省政府要求提供的相关文本及材料，在此情况下，海南省政府口头告知邢恩兰因其未能在法定期限内补正申请材料，视为其放弃行政复议申请。海南省政府的上述行为并未违反《行政复议法》及《行政复议法实施条例》的相关规定。邢恩兰起诉海南省政府不履行法定职责的理由不能成立，依法应予驳回。依照《中华人民共和国行政诉讼法》（以下简称《行政诉讼法》）第六十九条之规定，判决：驳回邢恩兰的诉讼请求。案件受理费50元，由邢恩兰共同负担。
上诉人邢恩兰上诉称，原审判决认定事实不清、适用法律错误。一、上诉人已经课尽义务补正，不存在逾期不补正的情况。即使被上诉人认为上诉人的补正材料仍然不明确，也应当书面告知并送达《不予受理决定》。二、上诉人提出的复议请求明确，归责对象、归责行为、归责主张明确，且列述了充分事实与理由，提交了详细证据。三、原审判决适用法律错误。综上，请求二审法院撤销原审判决，判令被上诉人履行行政复议的法定职责。
被上诉人海南省政府未提交书面答辩意见，当庭辩称其答辩意见与原审一致,请求二审法院驳回上诉，维持原判。
本院查明的事实与原审判决认定的事实一致，本院予以确认。
本院认为，本案的争议焦点为被上诉人视为上诉人放弃行政复议申请，事实是否清楚，程序是否合法，适用法律是否正确。根据《行政复议法实施条例》第二十九条的规定，行政复议申请材料不齐全或者表述不清楚的，行政复议机构可以自收到该行政复议申请之日起5日内书面通知申请人补正。补正通知应当载明需要补正的事项和合理的补正期限。无正当理由逾期不补正的，视为申请人放弃行政复议申请。因此，在行政复议机构通知复议申请人补正材料时，复议申请人有义务按照行政复议机构的要求提交相关材料。本案中，被上诉人审查上诉人的复议申请后，认为其申请材料不齐全，表述不清楚，下发《补正通知书》，告知其第一项复议请求不具体，要求其明确复议请求并提供相应文本；要求其提供被征收房屋的合法产权证明以及个人户籍登记簿；依法通知其于5个工作日内补正申请材料，并明确告知无正当理由逾期不补正的，视为放弃行政复议申请。该《补正通知书》程序合法，适用法律正确。上诉人收到《补正通知书》后，应当严格按照《补正通知书》规定的时间和具体要求，提供相应的材料，明确复议请求。但是上诉人收到《补正通知书》后，虽在指定期限内提交了《补正说明》，但无正当理由拒不提交户籍证明，未按照补正通知的要求提交相关材料，亦未对第一项复议请求按要求进行明确。因此，被上诉人依法视为上诉人放弃行政复议申请，事实清楚，程序合法，适用法律正确，应予维持。上诉人的上诉理由不成立，应予驳回。
综上，原审判决认定事实清楚、程序合法、适用法律正确，依法应予维持。上诉人邢恩兰的上诉请求和理由不能成立，依法应予驳回。依照《中华人民共和国行政诉讼法》第八十九条第一款第（一）项之规定，判决如下：
驳回上诉，维持原判。
二审案件受理费50元，由上诉人邢恩兰负担。
本判决为终审判决。
审判长陈焱
审判员吴天月
审判员朱望锋
二○一七年十一月二十七日
书记员李励云
附：相关法律条文：
《中华人民共和国行政诉讼法》
第八十九条人民法院审理上诉案件，按照下列情形，分别处理：
（一）原判决、裁定认定事实清楚，适用法律、法规正确的，判决或者驳回上诉，维持原判决、裁定；
（二）原判决、裁定认定事实错误或者适用法律、法规错误的，依法改判、撤销或者变更；
（三）原判决认定基本事实不清、证据不足的，发回原审人民法院重审，或者查清事实后改判；
（四）原判决遗漏当事人或者违法缺席判决等严重违反法定程序的，裁定撤销原判决，发回原审人民法院重审。
原审人民法院对发回重审的案件作出判决后，当事人提起上诉的，第二审人民法院不得再次发回重审。
人民法院审理上诉案件，需要改变原审判决的，应当同时对被诉行政行为作出判决。
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