海南省高级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼行终1115号
上诉人（原审原告）：王家能，男，1963年3月27日出生，黎族，住海南省白沙黎族自治县。
上诉人（原审原告）：王明道，男，1972年3月6日出生，黎族，住海南省海口市。
上诉人（原审原告）：王明德，男，1978年4月15日出生，黎族，住海南省三亚市。
上述上诉人的共同委托诉讼代理人：李亚雄，海南日新律师事务所律师。
被上诉人（原审被告）：白沙黎族自治县人民政府，住所地海南省白沙黎族自治县牙叉镇牙叉中路。
法定代表人：胡翔，该县县长。
委托诉讼代理人：陈开拓，白沙黎族自治县人民政府法制办主任。
委托诉讼代理人：林大进，海南法立信律师事务所律师。
原审被告：白沙黎族自治县元门乡人民政府，住所地海南省白沙黎族自治县元门乡。
法定代表人：符锦云，该乡乡长。
委托诉讼代理人：刘国峰，白沙黎族自治县元门乡人民政府组织委员。
委托诉讼代理人：徐佳欢，海南瑞来律师事务所律师。
上诉人王家能、王明道、王明德因与被上诉人白沙黎族自治县人民政府（简称白沙县政府）、原审被告白沙黎族自治县元门乡人民政府（简称元门乡政府）房屋行政强制纠纷一案，不服海南省第二中级人民法院（2017）琼97行初141号行政裁定，向本院提起上诉。本院于2017年7月14日立案后依法组成合议庭对本案进行了审理，现已审理终结。
一审法院认为，本案争议的焦点之一是白沙县政府是否是本案适格的被告。经庭审调查，白沙县政府述称关于涉案土地的征收方案还没有得到海南省人民政府的批准，其还未发布征地方案公告。且从本案各方当事人提交的证据材料看，《征收土地告知书》系由元门乡政府作出，故针对涉案土地作出土地征收行为是元门乡政府，没有证据证明白沙县政府针对涉案土地制定了征地方案并进行公告，故白沙县政府不是本案适格的被告，应当驳回王家能、王明道、王明德对白沙县政府的起诉。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，一审法院裁定驳回王家能、王明道、王明德对白沙县政府的起诉。
王家能、王明道、王明德不服一审裁定，上诉称，一、本案土地征收已经进入实施阶段，包括清点青苗及地上附着物、拨付土地补偿款、发布征地工作实施方案、平整土地，甚至非法强行拆除上诉人房屋等。因此，虽然被上诉人辩称涉案土地征收尚未获得海南省人民政府的批准，但是土地征收行为已经实际实施。二、一审庭审中原审被告承认其实施的土地征收行为系受被上诉人委托。本案土地征收行为系被上诉人决定部署，由原审被告及相关政府部门配合执行。虽然被上诉人未发布征地方案公告，但是土地征收行为事实上是由被上诉人决定实施的，被上诉人是适格被告。三、涉案土地征收尚未经过海南省人民政府批准，被上诉人实施土地征收行为明显是违法行为，应当依法撤销。综上，请求二审法院撤销一审裁定，指令一审法院继续审理本案。
被上诉人白沙县政府答辩称，白沙县政府在本案中没有对上诉人作出任何具体行政行为，不是本案的适格被告。涉案土地的征收方案还没有得到海南省人民政府的批准，白沙县政府还没有实质进行征地。
原审被告元门乡政府述称，2016年9月2日，元门乡政府作出《征收土地告知书》，依据是白沙黎族自治县国土环境资源局（以下简称白沙县国土局）作出的《关于2015-BSYM-01地块拟征收集体土地有关事项的告知书》。白沙县国土局作为白沙县土地行政主管部门，负责制定征地方案，其征地行为代表白沙县政府。元门乡政府是征地工作的具体实施单位，白沙县国土局负责征地项目的审核、报批工作，白沙县政府是本案的适格被告。
本院二审审理过程中，上诉人王家能、王明道、王明德向本院提交了白国土资让告字[2017]01号《白沙黎族自治县国土局国有建设用地使用权挂牌出让公告》，用于证明白沙县政府是本案适格被告。经本院二审质证，白沙县政府认为白沙县国土局作出的是一个新的行政行为，该份证据与本案没有关联性。元门乡政府认为白沙县国土局拟征收的地块与涉案地块为同一地块，白沙县国土局作出的该行政行为与前期征地行政行为有关联性。本院认为，该份证据落款时间为2017年7月4日，白沙县国土局在本案一审终结后对涉案土地使用权作出挂牌出让公告的行政行为与本案被诉的行政行为是两个不同的行政行为，上诉人提交的该份证据与本案没有关联性，本院不予采纳。
本院认为，本案的争议焦点是白沙县政府是否是本案适格的被告。《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。”本案被诉的行政行为是白沙县政府、元门乡政府征收王家能、王明道、王明德集体土地的行政行为。征收土地行为是由一系列行政行为构成的，从征收决定、安置补偿方案，到征收安置补偿决定或者协议，再到强制拆除、交出土地等，包含诸多独立的行政行为。二审听证过程中，王家能、王明道、王明德述称其所诉的行政行为主要是针对元门乡政府作出的《征收土地告知书》。经一审法院庭审调查，白沙县政府述称在王家能、王明道、王明德提起本案诉讼前，关于涉案土地的征收方案还没有得到海南省人民政府的批准，其还未发布征地方案公告。二审听证过程中，白沙县政府述称涉案土地的征收方案是在一审程序终结后才得到海南省人民政府的批准。从本案各方当事人提交的证据材料看，《征收土地告知书》系由元门乡政府作出，故针对涉案土地作出土地征收行为的是元门乡政府。王家能、王明道、王明德提供的证据不能证明白沙县政府实施了被诉土地征收行为，其对被诉土地征收行为不服，应当以元门乡政府为被告，白沙县政府不是本案适格被告，王家能、王明道、王明德将白沙县政府列为本案被告属于错列被告。《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，错列被告且拒绝变更的，已经立案的，应当裁定驳回起诉。在一审法院予以释明的情况下，王家能、王明道、王明德仍拒绝变更被告，属于《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的情形，依法应当驳回王家能、王明道、王明德对白沙县政府的起诉。综上，一审裁定以王家能、王明道、王明德错列被告且拒绝变更为由驳回其对白沙县政府的起诉并无不当，应予维持。王家能、王明道、王明德的上诉主张不能成立，本院不予支持。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，裁定如下：
驳回上诉，维持原裁定。
本裁定为终审裁定。
审判长孔琼
审判员叶珊茹
审判员魏文豪
二〇一七年九月四日
书记员李宗帅
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