海南省万宁市人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼9006行初25号
原告张孟新，男，1960年07月17日出生，汉族，现住海南省万宁市。
原告张珈毓，女，1993年06月22日出生，汉族，现住海南省万宁市，系原告张孟新的女儿。
委托代理人王国庆，海南新概念律师事务所律师。
委托代理人刘军，海南新概念律师事务所律师。
被告万宁市兴隆华侨旅游经济区管理委员会。
法定代表人林志飞，主任。
委托代理人马韶辉，男，万宁市兴隆华侨旅游经济区管理委员会工作人员。
委托代理人纪红，海南浩来律师事务所律师。
原告张孟新、张珈毓因认为被告万宁市兴隆华侨旅游经济区管理委员会行政不作为纠纷一案，向本院提起行政诉讼，本院立案后依法组成合议庭，公开开庭审理了本案。原告委托代理人王国庆，被告委托代理人马韶辉、纪红到庭参加诉讼。本案现已审理终结。
原告张孟新、张珈毓诉称，原告所居住的万宁市××宿舍）位于兴隆农场工会广场对面，始建于七十年代，是上下两层的楼房，当时农场是分配给科级以上干部居住的。1999年两排房改时，要求建好新房的要拆掉旧房，第一排的10户人梁振水、杨某等人就把新房作店铺出租，赖着不拆旧房（旧房约20平方米，离路边8米）。2015年8月，梁振水、杨某等人将旧房拆除而要建6层楼房，但没有兴隆农场和被告的审批。然而，梁振水、杨某等住户依然违法开工建设，最初原告所在的第二排等10户住户联名反对并上报兴隆农场，虽然被农场勒令停建，但是梁振水、杨某等人还是在放假或夜间抢建，并且违建建筑离路边只有0.8米。根据万宁市兴隆华侨旅游经济区管理委员会的兴管委（2015）61号文件、万宁市兴隆华侨旅游经济区危房改造办公室《关于区工会路裕华超市后面老干楼梁振水、杨某、ＸＸＸ等居民危房改造的复函》规定，对危房改造的要求是：”原址拆除重建、拆除重建的建筑不能超过两层、完善危改房的有关手续”。由此可见，梁振水、杨某等人违法建设行为是确凿无疑的。
由于梁振水等住户的违建施工将路边原本存在的排水沟填平，又将原告所在的宿舍一侧排水管道用水泥和沙石封堵，导致原告的房屋雨天排水不畅，甚至平时厨房和卫生间的生活废水排放都受到了影响，由此给原告的生活造成了非常大的不便和困扰，并且使原本能出租的房屋也因此而闲置，造成了原告很大的经济损失。为此，原告在梁振水、杨某等人违建之初（当时刚开始建第一层）即向被告万宁市兴隆华侨旅游经济区管理委员会进行电话举报，但没有得到被告的任何答复。之后原告又于2016年12月24日实名向被告邮寄控告书，要求被告履行监管查处职责，将梁振水、杨某等人的违建房屋强制拆除。然而直到现在违法建筑都已经建好第二层，原告仍没有收到被告任何书面答复，也没有看到被告对梁振水、杨某等人作出任何的查处行为。
为了维护原告的合法权益，根据《行政诉讼法》第二条、第十二条之规定，特提起诉讼，请依法判决：1、判决被告对原告关于万宁市兴隆华侨农场机关宿舍区的违建控告未予答复和处理的行政行为违法。2、判令被告履行对万宁市兴隆华侨农场机关宿舍区的违建行为进行查处的法定职责。3、判决被告承担本案诉讼费用。
被告万宁市兴隆华侨旅游经济区管理委员会辩称，一、答辩人不是本案适格被告。依据《海南省人民政府办公厅转发省发展和改革委员会省外事侨务办公室关于万宁等四市推进华侨农场改革和发展实施方案审核意见的通知》和《万宁市机构编制委员会关于印发万宁市兴隆旅游经济区机构设置主要职责内设机构和人员编制规定的通知》,答辩人万宁市兴隆华侨旅游经济区管理委员会是万宁市市委、市政府的派出机构，万宁市兴隆华侨旅游经济区管理委员会受市委、市政府的委托，对兴隆旅游经济区的政治、经济、社会等各项工作实行统一领导和管理。答辩人作为万宁市市委和市政府的派出机构，依规范性文件履行市委、市政府委托的职责，并不具备行政诉讼的主体资格。二、本案中答辩人不存在行政不作为的事实。为实施《万宁市人民政府办公室关于印发万宁市2015年农村危房改造实施方案的通知》，答辩人颁发了《关于万宁市兴隆华侨旅游经济区危房改造实施若干规定》，依据以上文件,经本案案外人杨某等人申请及答辩人调查、讨论，答辩人复函同意杨某等人在原危房地址上完善危房改造的有关手续后拆除重建，危房改造须服从城监部门管理。该复函已抄送城监部门。在案外人杨某等人施工过程中，与被答辩人发生了相关纠纷，被答辩人已就有关问题向城监部门反映。答辩人认为，依据《中华人民共和国城乡规划法》、《中华人民共和国建筑法》，本案涉案房屋是否属违法建筑，应由建设规划行政职能管理部门进行认定和处理，而不属万宁市人民政府的综合领导权限，答辩人作为万宁市人民政府的派出机构只能行使万宁市人民政府在兴隆华侨旅游经济区的管理权限，而无权行使有关职能部门的权限。答辩人在收到被答辩人的有关反映情况后，多次组织被答辩人和案外人进行调解，并将相关情况向被答辩人解释，故答辩人不存在行政不作为的情形。综上，被答辩人的诉请无事实和法律依据，请求法院驳回起诉。
经审理查明，2008年11月24日，海南省政府办公厅转发省发改委、外事办《关于万宁等四市推进华侨农场改革和发展实施方案审核意见》，同意省发改委、外事办成立万宁市兴隆旅游经济区的意见，但建议更名为”万宁市兴隆华侨旅游经济区”，设立经济区工作委员会、管理委员会，作为万宁市委、市政府的派出机构，并建议其级别确定为副处级单位。2011年3月24日，万宁市编委印发《万宁市兴隆旅游经济区机构设置主要职责内设机构和人员编制规定》，明确万宁市兴隆华侨旅游经济区工委、管委会隶属中共万宁市委、万宁市人民政府，为副处级事业单位，并受万宁市委、市政府的委托，行使相应的行政、经济和社会事务管理权限，负责经济区的统一规划、开发、建设和管理。2015年5月18日，万宁市政府办公室作出关于印发《万宁市2015年农村危房改造实施方案》的通知，目的是推进万宁市农村危房改造工作。2015年12月31日，万宁市兴隆华侨旅游经济区管委会印发《关于万宁市兴隆华侨旅游经济区危房改造实施若干规定》，对兴隆经济区的危房改造申报审批程序等事项作出规定。本案涉案房屋的房东梁振水、杨某等10户于2015年7月向兴隆农场申请对其原居住的位于兴隆工会裕华超市后面老干楼进行危房改造，9月4日在原址上拆旧建新，万宁市城监中队于11月12日应群众举报予以制止。梁振水、杨某等10户于11月17日将情况向兴隆经济区进行反映，主要要点是，10户原住的房屋需要危房改造；本案原告方的人员无故殴打10户的人员并阻止10户建房。兴隆华侨旅游经济区党政综合办公室于2015年12月10日作出《关于区工会路裕华超市后老干楼居民信访问题的调查报告》，提出调查处理意见：拟同意进行危房改造，按危房改造规定程序处理；殴打10户人员一事移交兴隆公安分局调查处理。2015年12月20日，兴隆华侨旅游经济区发展办公室作出《关于区工会路裕华超市后老干楼居民危房改造的意见》”1、同意原址拆除改造。2、层数不能超过两层。3、必须服从经济区的城建、国土、房改办的监督和指导。”2015年12月23日，发展办公室根据上述三点调查处理意见制成《请示报告件阅文卡》报有关领导审批。同日，兴隆经济区党政综合办公室负责人提出”同意拟办意见”，兴隆经济区主要领导最后批示同意。2016年1月5日，兴隆经济区危房改造办公室也对梁振水、杨某等10户危房改造的反映意见进行回复：同意原址拆除重建、重建的建筑不能超过两层、要完善危房改造的有关手续。梁振水、杨某等10户按危房改造的有关规定，填写《万宁市兴隆华侨农场危房集中改造申请审批表》，2016年1月14日，兴隆经济区党政综合办公室作出”同意”的调查意见，兴隆经济区危房改造办公室审批”同意原址拆建，楼层不能超两层。”之后，原告方于2016年12月24日向被告邮寄书面控告信，控告10户违法建筑，要求被告予以查处。期间，原告方还向其他单位及其他领导控告过。因被告未作出查处意见，原告方于2017年3月13日向本院提起行政诉讼，请依法判决：1、确认被告对原告关于万宁市兴隆华侨农场机关宿舍区的违建控告未予答复和处理的行政行为违法。2、判令被告履行对万宁市兴隆华侨农场机关宿舍区的违建行为进行查处的法定职责。3、被告承担本案诉讼费用。本案的原告原是黄北广，系原告张孟新的妻子，原告张珈毓的母亲，在案件审理过程中因病去世，之后，其丈夫张孟新、女儿张珈毓申请表示愿意以原告的名义参加诉讼。
本院认为，要正确处理本案，必须把握好下面案件的三个焦点问题：一是10户建房手续是否完善？二是兴隆华侨旅游经济区管委会是否适格被告？三是10户建房是否影响原告的合法权益？一、关于建房手续完备与否的问题。首先，10户原来住房建于80年代，至今已有30多年，从硬件方面来看，确实属于危房范围，需要进行改造。其次，10户于2015年7月份申请危房改造，有2015年5月18日万宁市政府颁发的《万宁市2015年农村危房改造实施方案》作为政策依据，虽然未被批准时于9月4日就在原址拆旧重建，但于2015年11月12日一经有关部门制止时就马上停建。之后，兴隆华侨旅游经济区的党政综合办公室、发展办公室、危房改造办公室等多家部门都发文同意10户参加危房改造。而且，10户还按照危房改造的有关规定填写有关表格，得到有关部门有关领导审批。第三，实际上该幢楼房至今只盖两层，完全符合坚持原址拆除重建、楼层不超两层的危房改造规定。所以，10户建房审批手续是完备的。二、关于被告是否具有适格的诉讼主体问题。根据海南省政府办公厅转发省发展和改革委员会与省外事华侨办公室《关于万宁等四市推荐华侨农场改革和发展实施方案审核意见的通知》、万宁市机构编制委员会《关于印发万宁市兴隆旅游经济区机构设置主要职责内设机构和人员编制规定的通知》，被告是万宁市人民政府的派出机构，并且受万宁市人民政府委托，对兴隆旅游经济区的政治、经济、社会各项工作实行统一领导和管理。根据最高法院关于执行《中华人民共和国行政诉讼法》若干问题的解释第二十一条的规定，兴隆旅游经济区管委会显然不是适格被告。三、关于10户建房是否影响原告的合法权益的问题。经实地勘查，10户建房对原告出租房、住房、按摩店的通风、采光、通行根本不造成影响，对原告的住房、按摩店的排水也不造成影响，如果对原告出租房的排水也不造成影响，那么，10户建房就不影响原告的合法权益。原告的出租房（省高院的判决书上称为”柴房”）位于东北面，10户新建的楼房位于西南面，该出租房的排污问题按照海南省高级人民法院（2015）琼民三终字第9号《民事判决书》的要求，应当排入兴隆农场工会路下或者兴桥路下的排污管道，而且只能排放经过三级化粪处理的污水，实际做法是由原告向兴隆农场申请，并支付相关费用，由农场为其修建排污管道。但2016年初，原告私自切割公共水泥路安装塑料管，将出租屋的生活污水特别是厕所的污水排到10户原来住房与水泥路交接处、专门用来排雨水的小沟里，而该小沟在2015年9月份10户建房时就毁掉了，这样如同意原告出租屋按原告的做法进行排污，实际上就是同意原告将污水排放在人行道上，其结果既不符合省高级人民法院判决书的要求，也会污染环境，影响人体健康。出租屋这种排污显然不具有合法性，10户建房也就谈不上影响到原告的合法权益。
综上所述，10户建房审批手续完善，未影响到原告的合法权益，兴隆华侨旅游经济区管委会不具有被告主体资格。原告在起诉兴隆华侨旅游经济区管委会的同时，另案起诉万宁市住房和城乡建设局，两案的诉讼请求完全一样。本院多次向原告释明，兴隆华侨旅游经济区管委会不具有被告主体资格，要求原告撤回起诉，但原告予以拒绝。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：
驳回原告张孟新、张珈毓的起诉。
案件受理费人民币50元，由原告张孟新、张珈毓共同负担。
如不服本裁定，可在裁定书送达之日起十日内向本院递交上诉状，并按对方当事人的人数提出副本，上诉于海南省第一中级人民法院。
审判长王德清
审判员翁雪花
人民陪审员陈君旭
书记员李想
附：本案适用的法律条文：
《最高人民法院关于适用<中华人民共和国行政诉讼法>
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caseinfo=JSON.stringify({\"法院ID\":\"2339\",\"案件基本情况段原文\":\"\",\"附加原文\":\"附法律条文
《中华人民共和国婚姻法》 第三十二条男女一方要求离婚的，可由有关部门进行调解或直接向人民法院提出离婚诉讼。
人民法院审理离婚案件，应当进行调解；如感情确已破裂，调解无效，应准予离婚。 有下列情形之一，调解无效的，应准予离婚： （一）重婚或有配偶者与他人同居的；
（二）实施家庭暴力或虐待、遗弃家庭成员的； （三）有赌博、吸毒等恶习屡教不改的； （四）因感情不和分居满二年的； （五）其他导致夫妻感情破裂的情形。
一方被宣告失踪，另一方提出离婚诉讼的，应准予离婚。 第三十六条父母与子女间的关系，不因父母离婚而消除。离婚后，子女无论由父或母直接抚养，仍是父母双方的子女。
离婚后，父母对于子女仍有抚养和教育的权利和义务。
离婚后，哺乳期内的子女，以随哺乳的母亲抚养为原则。哺乳期后的子女，如双方因抚养问题发生争执不能达成协议时，由人民法院根据子女的权益和双方的具体情况判决。
第三十七条离婚后，一方抚养的子女，另一方应负担必要的生活费和教育费的一部或全部，负担费用的多少和期限的长短，由双方协议；协议不成时，由人民法院判决。
关于子女生活费和教育费的协议或判决，不妨碍子女在必要时向父母任何一方提出超过协议或判决原定数额的合理要求。
第三十八条离婚后，不直接抚养子女的父或母，有探望子女的权利，另一方有协助的义务。 行使探望权利的方式、时间由当事人协议；协议不成时，由人民法院判决。
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[{法规名称:\'《中华人民共和国婚姻法（2001年）》\',Items:[{法条名称:\'第三十二条第一款\',法条内容:\' 第三十二条
男女一方要求离婚的，可由有关部门进行调解或直接向人民法院提出离婚诉讼。
人民法院审理离婚案件，应当进行调解；如感情确已破裂，调解无效，应准予离婚。
有下列情形之一，调解无效的，应准予离婚：
（一）重婚或有配偶者与他人同居的；
（二）实施家庭暴力或虐待、遗弃家庭成员的；
（三）有赌博、吸毒等恶习屡教不改的；
（四）因感情不和分居满二年的；
（五）其他导致夫妻感情破裂的情形。
一方被宣告失踪，另一方提出离婚诉讼的，应准予离婚。
\'},{法条名称:\'第三十六条第一款\',法条内容:\' 第三十六条
父母与子女间的关系，不因父母离婚而消除。离婚后，子女无论由父或母直接抚养，仍是父母双方的子女。
离婚后，父母对于子女仍有抚养和教育的权利和义务。
离婚后，哺乳期内的子女，以随哺乳的母亲抚养为原则。哺乳期后的子女，如双方因抚养问题发生争执不能达成协议时，由人民法院根据子女的权益和双方的具体情况判决。
\'},{法条名称:\'第三十七条第一款\',法条内容:\'
第三十七条
离婚后，一方抚养的子女，另一方应负担必要的生活费和教育费的一部或全部，负担费用的多少和期限的长短，由双方协议；协议不成时，由人民法院判决。
关于子女生活费和教育费的协议或判决，不妨碍子女在必要时向父母任何一方提出超过协议或判决原定数额的合理要求。
\'},{法条名称:\'第三十八条第一款\',法条内容:\'
第三十八条 离婚后，不直接抚养子女的父或母，有探望子女的权利，另一方有协助的义务。
行使探望权利的方式、时间由当事人协议；协议不成时，由人民法院判决。
父或母探望子女，不利于子女身心健康的，由人民法院依法中止探望的权利；中止的事由消失后，应当恢复探望的权利。
\'}]}]};if
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