海南省三亚市中级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼02行终79号
上诉人（原审原告）倪洪江，男，1971年5月14日出生，汉族。
被上诉人（原审被告）三亚市住房和城乡建设局，住所地三亚市河东路182号。
法定代表人黎觉行，该局局长。
委托代理人郑炜，该局工作人员。
上诉人倪洪江因诉被上诉人三亚市住房和城乡建设局(以下简称三亚市住建局)信息公开一案，不服三亚市城郊人民法院于2017年8月29日作出的（2017）琼0271行初154号行政判决，于2017年9月15日通过原审法院向本院提起上诉。本院于2015年9月28日受理后，依法组成合议庭，于2017年11月9日公开开庭审理了本案。上诉人倪洪江，被上诉人三亚市住建局的委托代理人郑炜到庭参加诉讼。本案现已审理终结。
原审法院查明：倪洪江系三亚市某小区的业主。2017年7月10日，倪洪江向三亚市住建局申请公开《关于核定三亚美丽新海岸社区物业服务费收费标准的建议》（三房函〔2009〕124号）（以下简称124号《建议》）的信息。三亚市住建局受理后，于2017年7月17日向倪洪江作出《政府信息不予公开告知书》（【2017】第2号），认为倪洪江申请获取的信息属于法律、法规规定不予公开的其他情形，故根据《中华人民共和国政府信息公开条例》第二十一条第（二）项的规定，告知倪洪江不予公开。倪洪江不服，遂提起本案诉讼。
原审法院认为：倪洪江向三亚市住建局申请公开的124号《建议》为三亚市住建局向市物价部门作出的有关核定三亚美丽新海岸社区物业服务费收费标准的建议函件。根据《中华人民共和国价格法》第五条的规定，关于物业服务收费定价工作的负责单位为价格主管部门，而非住建部门，且124号《建议》的形式及内容均为对制定有关收费标准的建议，而非最终结论。根据《海南省政府信息公开办法》第九条第一款第（四）项的规定，属于正在调查、讨论、处理过程中的政府信息不予公开。因此，三亚市住建局以倪洪江申请公开的信息属于法律、法规规定不予公开的情形为由，根据《中华人民共和国政府信息公开条例》第二十一条第（二）项的规定，告知倪洪江不予公开，已履行其法定职责。倪洪江提出的诉讼请求缺乏事实根据与法律依据，应予驳回。遂依照《中华人民共和国行政诉讼法》第六十九条和《最高人民法院关于审理政府信息公开行政案件若干问题的规定》第十二条第（一）项之规定，判决驳回倪洪江的诉讼请求，案件受理费50元减半收取，由倪洪江负担。
上诉人倪洪江上诉称：一、原审判决认定三亚市住建局的124号《建议》属于正在调查、讨论、处理过程中的政府信息不予公开，认定事实错误，适用法律错误。1、2009年5月5日，三亚市物价局作出《关于兰海美丽新海岸小区物业服务收费备案的通知》（三价函【2009】65号）（以下简称65号《通知》）。三亚市物价局没有向三亚市住建局发函询问美丽新海岸小区是否属于高档住宅小区，物业服务收费应该按照什么标准来确定，因为这是三亚市物价局的本职工作，其根据职责认定了美丽新海岸小区的物业收费标准。2、由于美丽新海岸小区物业公司不服三亚市物价局核定的物业服务收费标准，又再次向三亚市物价局重新备案，三亚市物价局于2009年5月31日作出《关于美丽新海岸小区物业服务收费标准重新备案有关问题的函复》（三价函【2009】73号）（以下简称73号《函复》），再次要求美丽新海岸小区物业服务收费标准按照65号《通知》执行。因为美丽新海岸小区物业公司无论是物业资质等级还是小区的规模等级根本不符合其申报的物业服务收费标准的要求，所以三亚市物价局再次否定物业的重新备案的申请，期间并没向三亚市住建局询问过任何问题和建议。3、美丽新海岸物业公司为提高物业服务收费标准的目的，通过三亚市住建局向三亚市物价局作出124号《建议》函，此函不仅违法认定了美丽新海岸小区是高档小区，还违法认定该物业公司是二级企业，连小区物业服务收费标准也给出了明确的建议，属于行政乱作为。物业服务费定价工作从物业公司和三亚市物价局之间的审批关系，变成三亚市住建局和三亚市物价局的行政关系。所以三亚市物价局于2009年8月作出《关于美丽新海岸小区物业服务收费有关问题的通知》（三价字【2009】110号）（以下简称110号《通知》）中，明确根据124号《建议》确认美丽新海岸小区属于高档住宅区，物业服务收费实行市场调节。124号《建议》从表面上看是建议，实际上是一份认定函。因此124号《建议》不属于正在调查、讨论、处理过程中的政府信息，是对美丽新海岸小区物业服务收费定价的确认函，已经涉及到公民的切身利益，侵害了上诉人的利益。因此124号《建议》符合《中华人民共和国政府信息公开条例》第九条第一款第（一）项的规定，行政机关对涉及公民、法人或者其他组织切身利益的应当主动公开。二、即使原审判决认定124号《建议》属于正在调查、讨论、处理过程中的政府信息，但三亚市物价局对美丽新海岸小区物业服务收费核定备案过程早就结束并实施了，那么该124号《建议》不再是过程性信息，理应公开。过程性信息只是反映了行政机关正在调查、讨论、研究或者审查等行为过程中某一环节的情况，其信息是未成熟的、不确定的，一般不予公开，但行为过程结束后则应当公开。在美丽新海岸物业服务收费备案过程中，124号《建议》属于意见信息，在备案没有完成的过程中可以不公开，但在收费标准完成后，仍然不公开就太牵强了。最高人民法院发布政府信息公开十大案例第五个案例是非常典型的过程信息公开。三、原审不同意公开的信息却又被三亚市住建局主动公开，原审却判决不予公开是自相矛盾的。三亚市住建局在上诉人将其告到法院后，在开庭前工作人员主动打电话给上诉人同意提供124号《建议》，也就是同意公开，但原审却认为属于过程信息，不予公开，相互矛盾。四、原审将本案于其他四个毫无关联的案件合并审理，违反了《中华人民共和国行政诉讼法》的规定，侵害了上诉人的诉权和合法权益。原审将本案与其他四案件合并开庭，导致开庭时间紧迫，开庭程序压缩，也没有进行庭审辩论，影响上诉人开庭状态，由此审理程序作出的判决也是不具有公平正义性的。综上，根据《中华人民共和国行政诉讼法》第八十九条第一款第（二）项规定，请求依法撤销原审判决，判决公开124号《建议》。
被上诉人三亚市住建局辩称：一、在原审判决中已经作出认定，根据国家价格法第五条的规定，物业费的收费标准应由价格主管部门也就是物价局作出认定，并不是住建部门。根据《海南省政府信息公开办法》第九条第一款第（四）项的规定，正在调查、讨论、处理过程中的政府信息不予公开。在本案中，三亚市住建局给三亚市物价局是一份建议函件，建议美丽新海岸小区物业服务收费标准按高档小区采用市场调节方式收取物业费。而在2009年6月8日三亚市物价局对该小区的物业服务收费作出实质性认定，由业主与物业公司在合同中约定，由此可见，三亚市住建局并非是该小区物业服务收费标准的最终决定部门。故三亚市住建局作出的124号《建议》应属于上述法律规定的正在调查、讨论、处理过程中的政府信息，故应当不予公开。二、鉴于该建议在原审阶段已经向法庭作为证据提交，上诉人已知悉124号《建议》内容，继续申请公开已无实际必要。三、原审判决事实清楚、程序合法、适用法律准确，因为在原审时，上诉人同时将三亚市住建局、三亚市规划局、三亚市综合执法局等政府部门针对该小区的物业存在违法建筑的问题进行诉讼，故法院合并审理有事实和法律依据。请求：依法维持一审判决，驳回上诉人的诉讼请求。
上诉人倪洪江向本院提交了以下证据：1.65号《通知》，证明物业服务收费备案工作是三亚市物价局的本职工作，与被上诉人无关，三亚市物价局作出备案通知前并未向上诉人行文对美丽新海岸小区是什么性质的小区进行询问和调查；2.73号《函复》，证明三亚市物价局对美丽新海岸小区物业服务公司的重新备案申请予以否定；3.110号《通知》，证明三亚市物价局在收到被上诉人的124号《建议》后，就以124号《建议》认定的标准对美丽新海岸小区的物业服务收费进行了重新认定，三亚市住建局表面上是建议，实际上是确认，直接干涉三亚市物价局的物业服务收费备案工作，侵害小区业主的利益，124号《建议》已经成为三亚市物价局对美丽新海岸小区物业服务收费不用备案的依据。
被上诉人对上诉人证据质证意见。对证据1、2真实性、合法性无异议，对关联性有异议，认为与本案无关；对证据3真实性、合法性、关联性无异议，对证明目的有异议，认为被上诉人的职责只是对三亚市小区性质作出评价，社区物业服务收费标准是由物价局确定的，被上诉人只是作出建议，并非作出决定。
上诉人二审提交的证据均来源合法、形式真实，与本案具有关联性，可以作为认定本案事实的根据，本院予以确认。
本院查明的事实与原审查明的相一致。
本院认为，本案的争议焦点为：一、上诉人向被上诉人申请公开的124号《建议》是否属于依申请应当公开的政府信息；二、原审判决程序是否合法，适用法律是否正确。
一、关于上诉人向被上诉人申请公开的124号《建议》是否属于依申请应当公开的政府信息问题。首先，《中华人民共和国政府信息公开条例》第十三条规定，公民、法人或者其他组织还可以根据自身生产、生活、科研等特殊需要，向国务院部门、地方各级人民政府及县级以上地方人民政府部门申请获取相关政府信息。本案中，上诉人倪洪江作为三亚美丽新海岸小区的业主，有权依申请获取该小区物业服务收费的行政信息。其次，《中华人民共和国政府信息公开条例》第二十一条第（二）项规定，对申请公开的政府信息属于不予公开范围的，应当告知申请人并说明理由。本案中，被上诉人三亚市设建局未能说明上诉人倪洪江申请公开的信息具体存在法定不予公开的情形，简单的以上诉人倪洪江申请获取的信息属于”法律、法规规定不予公开的其他情形”为由答复不予公开，属于适用法律错误。再次，原审法院认定124号《建议》属于正在调查、讨论、处理过程中的政府信息不予公开有误，应予纠正。124号《建议》作出后已被三亚市物价局采用并作出通知，不再是处理过程中的信息。最后，三亚市住建局已于原审答辩期间提交了124号《建议》作为证据使用，上诉人倪洪江也已经获取，实际上被上诉人三亚市住建局已向上诉人倪洪江公开了124号《建议》。
二、关于原审判决程序是否合法，适用法律是否正确问题。《中华人民共和国行政诉讼法》第二十七条规定，当事人一方或者双方为二人以上，因同一行政行为发生的行政案件，或者因同类行政行为发生的行政案件，人民法院认为可以合并审理并经当事人同意的，为共同诉讼。原审中上诉人倪洪江分别起诉三亚市住建局等五案，系基于同类行政行为发生的行政案件，而原审法院已通知上诉人倪洪江，且上诉人倪洪江在原审并未提出异议，原审法院合并审理并无不当。上诉人倪洪江认为原审法院合并审理不当的理由不充分，不予支持。本案124号《建议》属于依申请公开的信息，原审法院适用《海南省政府信息公开办法》第九条第一款第（四）项，以属于正在调查、讨论、处理过程中的政府信息为由，判决不予公开有误。理由如上所述，不再赘述。
综上所述，三亚市住建局作出的124号《建议》属于依申请应当公开的信息，原审法院判决不予公开不当，适用法律错误，应予纠正。鉴于被上诉人三亚市住建局已于原审答辩期间公开了124号《建议》，判决被上诉人三亚市住建局公开已没有意义，而应确认违法。依照《中华人民共和国行政诉讼法》第七十四条第二款第（三）项之规定，判决如下：
一、撤销三亚市城郊人民法院（2017）琼0271行初154号行政判决。
二、确认三亚市住房和城乡建设局作出的不予公开《关于核定三亚美丽新海岸社区物业服务费收费标准的建议》（三房函〔2009〕124号）行政行为违法。
二审受理费50元（上诉人已预缴），由被上诉人负担。
本判决为终审判决。
审判长吉红
审判员陈兴科
审判员张维青
二○一七年十一月二十七日
书记员王娟
附：相关法律条文
中华人民共和国政府信息公开条例
第十三条除本条例第九条、第十条、第十一条、第十二条规定的行政机关主动公开的政府信息外，公民、法人或者其他组织还可以根据自身生产、生活、科研等特殊需要，向国务院部门、地方各级人民政府及县级以上地方人民政府部门申请获取相关政府信息。
第二十一条对申请公开的政府信息，行政机关根据下列情况分别作出答复：
（一）属于公开范围的，应当告知申请人获取该政府信息的方式和途径；
（二）属于不予公开范围的，应当告知申请人并说明理由；
（三）依法不属于本行政机关公开或者该政府信息不存在的，应当告知申请人，对能够确定该政府信息的公开机关的，应当告知申请人该行政机关的名称、联系方式；
（四）申请内容不明确的，应当告知申请人作出更改、补充。
中华人民共和国行政诉讼法
第二十七条当事人一方或者双方为二人以上，因同一行政行为发生的行政案件，或者因同类行政行为发生的行政案件，人民法院认为可以合并审理并经当事人同意的，为共同诉讼。
第七十四条行政行为有下列情形之一的，人民法院判决确认违法，但不撤销行政行为：
（一）行政行为依法应当撤销，但撤销会给国家利益、社会公共利益造成重大损害的；
（二）行政行为程序轻微违法，但对原告权利不产生实际影响的。
行政行为有下列情形之一，不需要撤销或者判决履行的，人民法院判决确认违法：
（一）行政行为违法，但不具有可撤销内容的；
（二）被告改变原违法行政行为，原告仍要求确认原行政行为违法的；
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