海南省高级人民法院
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（2017）琼行终439号
上诉人（原审原告）海南中能建材实业有限公司，住所地海南省屯昌县屯城镇八一西路。
法定代表人钟培臣，该公司总经理。
委托代理人罗晋京，海南法立信律师事务所律师。
委托代理人王健骁，海南法立信律师事务所律师。
被上诉人（原审被告）海南省工业和信息化厅，住所地海口市国兴大道9号省政府国兴办公区主楼7楼。
法定代表人韩勇，该厅厅长。
委托代理人翁文花，海南省工业和信息化厅政策法规处副处长。
委托代理人徐钟敏，海南省人民政府法制办公室立法处立法专员。
上诉人海南中能建材实业有限公司（以下简称中能公司）因其诉被上诉人海南省工业和信息化厅（以下简称省工信厅）不履行法定职责一案，不服海南省海口市中级人民法院(2016)琼01行初263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，现已审理终结。
本案被诉行政行为：2010年7月27日，省工信厅向工业和信息化部（以下简称工信部）报送琼工信政函〔2010〕412号《海南省工业和信息化厅关于报送2010年海南省淘汰落后产能情况的函》（以下简称报工信部412号函），该函未将中能公司列入海南省2010年淘汰落后产能名单。
原审查明，2008年1月30日海南省人民政府办公厅作出琼府办〔2008〕13号《海南省人民政府办公厅关于印发”十一五”水泥工业产业结构调整实施方案的通知》（以下简称省政府办公厅13号通知），屯昌中能水泥发展有限公司（以下简称中能水泥公司）的立窑水泥生产线被列为2009年的淘汰计划。2010年2月3日，省工信厅作出琼工信原函〔2010〕60号《海南省工业和信息化厅关于报送淘汰落后水泥产能三年计划的函》报工信部，中能水泥公司不在该计划内。2010年5月18日，省工信厅作出琼工信〔2010〕145号《海南省工业和信息化厅关于上报2010年淘汰落后产能计划的请示》（以下行文中”2010年淘汰落后产能计划”均简称为2010年淘汰计划）报省政府。2010年6月11日，省工信厅对屯昌县人民政府作出琼工信政函〔2010〕291号《海南省工业和信息化厅关于下达2010年淘汰落后产能总量分解计划的函》（以下简称省工信厅291号函），未安排屯昌县水泥淘汰任务。2010年6月30日，省工信厅将2010年海南省淘汰落后产能企业名单进行公示。2010年7月12日，省工信厅对各市、县、自治县政府作出琼工信政〔2010〕225《海南省工业和信息化厅关于下达我省2010年第一批淘汰落后产能计划的通知》；2010年7月27日，省工信厅报送报工信部412号函；工信部于2010年8月5日作出工产业〔2010〕第111号《公告》。上述通知、函、公告的附件中均未将中能水泥公司列入海南省2010年淘汰落后产能名单。2010年10月28日，屯昌县科技和工业信息化局（以下简称屯昌工信局）和屯昌县财政局在向省工信厅作出的屯科工信〔2010〕40号《关于屯昌县淘汰落后产能工作情况的汇报》中确认：2010年10月底，关闭中能水泥公司立窑生产线，并在工作进展情况部分载明：”我县中能水泥厂按省淘汰落后产能计划定于2011年8月1日前关闭，今年我县为了加快淘汰落后产能进度，决定今年10月底关闭我县中能水泥厂立窑生产线。”2011年5月20日，省工信厅、海南省财政厅、海南省发展和改革委员会向财政部、工信部、国家能源局作出琼财建〔2011〕818号《关于申请2011年淘汰落后产能中央奖励资金的请示》（以下简称818号请示），将中能水泥公司名单列入《海南省2010年淘汰落后产能项目明细表》，申请2011年中央财政奖励，未果。2013年中能公司在海中建〔2013〕10号《关于申请解决拖欠淘汰落后产能专项补贴资金的请示》中，向省工信厅提出追加解决国家淘汰落后产能补助金的申请。2016年7月28日，中能公司向原审法院提起行政诉讼，请求：1.确认省工信厅未依法履行职责，未将中能公司被拆除的立窑水泥生产线列入2010年淘汰计划名单上报给工信部的行为属行政不作为；2.诉讼费由省工信厅负担。
另查明，2004年原屯昌县水泥厂发包给中能水泥公司经营。2010年8月23日，中能公司通过竞买购得原屯昌县水泥厂生产区39369.52平方米工业用地、地上附着物及设备。
原审认为，一、关于中能公司的起诉是否超过起诉期限的问题。本案中能公司提起的是不履行法定职责之诉，省工信厅是否将中能公司列入2010年淘汰落后产能企业名单上报工信部，并非依中能公司的申请，本案不能适用《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》第四条的规定，故中能公司提起本案诉讼并未超过法定的起诉期限。二、关于省工信厅未将中能公司被拆除的立窑水泥生产线列入2010年海南省淘汰落后产能计划名单上报给工信部的行为是否属于不履行法定职责的问题。首先，中能公司无法提供证据证明省工信厅曾要求其于2010年拆除立窑水泥生产线。省工信厅在291号函和琼工信政〔2010〕225号《海南省工业和信息化厅关于下达我省2010年第一批淘汰落后产能计划的通知》中，均未安排屯昌县2010年的落后水泥产能淘汰任务，且屯昌工信局和屯昌县财政局向省工信厅作出的屯科工信〔2010〕40号《关于屯昌县淘汰落后产能工作情况的汇报》中也明确：”我县中能水泥厂按省淘汰落后产能计划定于2011年8月1日前关闭”。因此，拆除中能公司的立窑水泥生产线不在省工信厅2010年淘汰落后计划中，省工信厅不将中能公司被拆除的立窑水泥生产线列入2010年淘汰计划名单上报给工信部，不属于漏报。其次，省工信厅公示的2010年海南省淘汰落后产能企业名单中，要求淘汰落后产能的最晚时限是2010年8月1日前，工信部工产业〔2010〕第111号《公告》中要求淘汰落后产能的最晚时限是2010年9月底前，而中能公司的立窑水泥生产线是2010年10月底关闭，故中能公司拆除的立窑水泥生产线不符合2010年淘汰落后产能的要求，省工信厅未将其列入2010年淘汰计划名单并上报工信部，并不违反相关规定。
综上，中能公司的请求没有事实根据和法律依据，应予驳回。依照《中华人民共和国行政诉讼法》第六十九条的规定，判决驳回中能公司的诉讼请求。案件受理费50元，由中能公司负担。
上诉人中能公司上诉称，该公司是涉案被拆除立窑水泥生产线及相关设备的所有人，有权获得国家给予的拆除水泥落后产能的财政奖励资金。根据省政府办公厅13号通知，中能水泥公司列入2009年淘汰的生产线，应在2009年底前拆除。但2009年并未实际拆除，而是在省工信厅的要求和指导下，屯昌工信局下文限令中能公司在2010年拆除立窑生产线，淘汰落后产能。中能公司按照政府要求拆除了立窑生产线，拆除前，省工信厅及屯昌县工信局派相关人员现场指导。拆除后，省工信厅于2010年12月22日向中能公司出具了《淘汰落后产能确认书》，并将中能公司纳入2010年考核总量，参与国家对海南省完成2010年淘汰落后产能任务情况的考核，但却漏将中能公司立窑生产线列入2010年淘汰计划名单向上级汇报，导致中能公司未能领取淘汰落后产能的中央财政奖励资金154万元。因申请中央财政奖励须经省工信厅上报，而省工信厅的漏报行为导致中能公司未能获得中央财政奖励资金。虽然后来省工信厅将中能公司补报为2011年奖励对象，但因中能公司已在2010年拆除生产线，不符合2011年奖励条件，至今无法获得中央财政奖励资金。综上，请求本院：1.撤销原审判决；2.确认省工信厅未依法履行职责，未将中能公司被拆除的立窑水泥生产线列入2010年海南省淘汰落后产能计划名单报给工信部的行为属行政不作为；3.诉讼费由省工信厅负担。
被上诉人省工信厅答辩称，一、制定海南省2010年淘汰计划有其特殊的历史背景。2010年为”十一五”的最后一年，节能形势相当严峻，为确保实现国家”十一五”节能减排目标，国务院和工信部分别发文（国发〔2010〕7号、国发〔2010〕12号、工信部产业〔2010〕251号），自上而下给各省市政府下达2010年淘汰落后产能任务指标（具体量化指标，其中下达我省水泥淘汰任务171万吨），同时明确要求各省市政府：”尽快将目标任务分解到市、县，落实到具体企业，采取综合措施，确保落后产能在第三季度前全部关停。”为落实国务院和工信部文件精神，省工信厅代表省政府制定了海南省2010年淘汰计划,并按要求报省政府同意及公示后，下达市县落实，同时上报工信部备案。二、省工信厅没有将中能公司的立窑水泥生产线列入2010年淘汰计划的法定义务。省工信厅所制定的2010年淘汰计划是项任务分解计划，由省政府直接分解到市县，落实到具体企业，不以企业申报为前提。省工信厅制定2010年淘汰计划要着重考虑以下两点：一是对全省情况进行统筹平衡；二是确保完成工信部下达的任务指标。由此可见，省工信厅在制定2010年淘汰计划时是根据实际情况自主统筹分配的，省工信厅没有责任和义务必须将中能公司的落后水泥生产线列入该计划。中能公司诉称省工信厅行政不作为，应当履行举证责任，但却未能提供准确的证据证明省工信厅应当将其纳入2010年淘汰计划。三、省工信厅在给工信部报备2010年淘汰计划时，不存在漏报。省工信厅制定2010年淘汰计划，按工信部要求，报经省政府同意并在《海南日报》公示后，下达给市县政府落实，同时向工信部报备。在这个过程中，省工信厅上报给省政府的计划名单、媒体公示名单、下达给市县政府落实名单和报送工信部备案名单均未列中能公司，因此不存在漏报。此外，在未将中能公司落后水泥生产线列入2010年淘汰计划的情况下，省工信厅亦未采取任何措施责令中能公司在2010年淘汰，因此中能公司在2010年事实淘汰不是由省工信厅造成的。四、中能公司无法获得淘汰落后产能中央财政奖励不是由省工信厅过错造成的。根据淘汰落后产能中央财政奖励政策（财建〔2007〕873号文），中能公司计划在2010年淘汰，若需申请中央财政奖励，应当在计划淘汰的当年年初通过省级财政部门向财政部申报。中能公司未获得中央财政奖励是由于其没有按照财建〔2007〕873号文件规定向财政部门申报，而非由于省工信厅不履行职责造成。省工信厅制定2010年淘汰计划与中央财政奖励资金申报无关。五、中能公司提起诉讼超过法定起诉期限。中能公司提起诉讼早已超过《中华人民共和国行政诉讼法》第四十六条关于”六个月”和”五年”起诉期限的规定，应当驳回中能公司的起诉。综上，请求依法驳回上诉，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，《中华人民共和国行政诉讼法》第四十六条第一款规定，公民、法人或者其他组织直接向人民法院提起诉讼的，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。该条第二款规定，因不动产提起诉讼的案件自行政行为作出之日起超过二十年，其他案件自行政行为作出之日起超过五年提起诉讼的，人民法院不予受理。本案中能公司的诉讼请求是：确认省工信厅未依法履行职责，未将其被拆除的立窑水泥生产线列入2010年淘汰计划名单上报给工信部的行为属行政不作为。根据中能公司的诉讼请求及本案查明事实，本案省工信厅实质已作出了行政行为，即省工信厅将2010年淘汰计划名单上报给工信部的行为，该行为已实施完毕。中能公司不服的是省工信厅没有将其列入该名单中，主张省工信厅没有将其列入名单侵害其合法权益。根据本案查明事实，省工信厅上报2010年淘汰计划名单给工信部的时间是2010年7月27日。中能公司提起本案诉讼的时间是2016年7月28日，已经超过了前述法律规定的最长五年的起诉期限，该起诉应予驳回。原审受理本案并判决驳回中能公司的诉讼请求适用法律错误，依法应予撤销。依照《中华人民共和国行政诉讼法》第八十九条第一款第（二）项、《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》第七十九条第（一）项的规定，裁定如下：
一、撤销海南省海口市中级人民法院（2016）琼01行初263号判决；
二、驳回海南中能建材实业有限公司的起诉。
海南中能建材实业有限公司已预交的一、二审案件受理费各50元共100元予以退还。
本裁定为终审裁定。
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审判长麻红丽
审判员王华
审判员黄胜敏
书记员王洪玉
附：本判决适用的相关法律依据
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[{法规名称:\'《中华人民共和国劳动合同法》\',Items:[{法条名称:\'第四十六条\',法条内容:\' 第四十六条
有下列情形之一的，用人单位应当向劳动者支付经济补偿： [ly] （一）劳动者依照本法第三十八条规定解除劳动合同的；[ly]
（二）用人单位依照本法第三十六条规定向劳动者提出解除劳动合同并与劳动者协商一致解除劳动合同的；[ly]
（三）用人单位依照本法第四十条规定解除劳动合同的；[ly] （四）用人单位依照本法第四十一条第一款规定解除劳动合同的；[ly]
（五）除用人单位维持或者提高劳动合同约定条件续订劳动合同，劳动者不同意续订的情形外，依照本法第四十四条第一项规定终止固定期限劳动合同的；[ly]
（六）依照本法第四十四条第四项、第五项规定终止劳动合同的；[ly]
（七）法律、行政法规规定的其他情形。[ly]\'}]},{法规名称:\'《中华人民共和国民事诉讼法（2013年）》\',Items:[{法条名称:\'第一百七十条第一款\',法条内容:\'
第一百七十条 第二审人民法院对上诉案件，经过审理，按照下列情形，分别处理：[ly][ly]
（一）原判决、裁定认定事实清楚，适用法律正确的，以判决、裁定方式驳回上诉，维持原判决、裁定；[ly]
（二）原判决、裁定认定事实错误或者适用法律错误的，以判决、裁定方式依法改判、撤销或者变更；[ly]
（三）原判决认定基本事实不清的，裁定撤销原判决，发回原审人民法院重审，或者查清事实后改判；[ly]
（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。[ly]
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。[ly]\'},{法条名称:\'第一百七十五条\',法条内容:\'
第一百七十五条 第二审人民法院的判决、裁定，是终审的判决、裁定。[ly]\'}]}]};if ($(\"#divTool_Summary\").length
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