海南省高级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼行终111号
上诉人（原审原告）：蒋淑玉，女，1947年5月21日出生，汉族，现住海南省三亚市。
上诉人（原审原告）：宋洪涛，男，1949年1月15日出生，汉族，现住海南省三亚市。
上诉人（原审原告）：张英浩，男，1997年9月6日出生，满族，现住海南省三亚市。
上诉人（原审原告）：吴彦滨，男，1962年9月13日出生，汉族，现住海南省三亚市。
��诉人（原审原告）：原告李广福，男，1952年2月24日出生，汉族，现住海南省三亚市。
上诉人共同委托诉讼代理人：王飞雄，广东深天成（文昌）律师事务所律师。
被上诉人（原审被告）：三亚市规划局。住所地：海南省三亚市河东路***号。
法定代表人：黄海雄，该局局长。
委托诉讼代理人：张宏，三亚市规划局工作人员。
委托诉讼代理人：杨珥，三亚市规划局工作人员。
被上诉人（原审被告）：三亚市人民政府。住所地：海南省三亚市新风路***号。
法定代表人：吴岩峻，该市市长。
委托诉讼代理人：郑大平，三亚市人民政府法制办公室工作人员。
上诉人蒋淑玉、宋洪涛、张英浩、吴彦滨、李广福因与被上诉人三亚市人民政府（以下简称三亚市政府）及三亚市规划局颁发建设工程规划临时许可证纠纷一案，不服海南省三亚市中级人民法院（2016）琼02行初520号行政裁定，向本院提起上诉。本院于2017年2月13日立案后依法组成合议庭对本案���行了审理，现已审理终结。
蒋淑玉、宋洪涛、张英浩、吴彦滨、李广福向一审法院诉称，2005年1月16日，经三亚市规划局申请，三亚市政府批准海南金逸海实业有限公司（以下简称金逸海公司）拟在其三土房（2005）字第1363号国有土地使用证项下土地上建设一栋高楼。该申请经用地许可、建设工程许可，并通过两次工程规划条件变更后，三亚市规划局于2006年3月23日核发了〔2006〕28号《三亚市建设工程规划临时许可证》，许可金逸海公司建设一栋26层公寓楼即风华海月公寓楼，并最终依据该许可证于2009年12月4日核发了〔2009〕02号《建设工程规划许可证》。2016年7月，因三亚市政府对风华海月商业裙楼进行拆除，拟交由三亚市住房和城乡建设局建设棚改项目。蒋淑玉、宋洪涛、张英浩、吴彦滨、李广福等业主于2016年7月25日才得知在建设风华海月公寓楼的过程中，金逸海公司一直试图变更已经确定的规划许可，多次向三亚市规划局申请在原有用地上增建一层酒吧街。因其不符合原规划和设计条件，三亚市规划局和三亚市规划委员会也多次明文拒绝。但因三亚市某领导的干涉，三亚市规划局违反法定程序，在未上报三亚市规划委员会审议的情况下，直接向三亚市政府报批，向金逸海公司颁发了〔2006〕195号《三亚市建设工程规划临时许可证》。蒋淑玉、宋洪涛、张英浩、吴彦滨、李广福认为该许可程序严重违法，侵害了其合法权益，理由：一、〔2006〕195号《三亚市建设工程规划临时许可��》违反法定程序，应予撤销。三亚市政府和三亚市规划局对金逸海公司的规划变更既不涉及公共利益，也未通过三亚市规划委员会的专家论证，更未采取听证会等方式听取风华海月业主的意见，程序违法。二、该行政许可行为严重侵害了风华海月业主的合法权益。风华海月公寓楼对外销售时间为2006年8月，其预售许可证下发时间为2006年11月3日。三亚市政府和三亚市规划局对金逸海公司的建设工程规划许可变更时，风华海月公寓楼已经对外销售，并被部分业主所购买，其《商品房买卖合同》明确载明，风华海月公寓楼用地面积为6606.57平方米，项目的规划变更必须取得业主书面同意等。三亚市政府和三亚市规划局的许可变更行为直接造成了蒋淑玉、宋洪涛、张英浩、吴彦滨、李广福享有的土地分摊面积减少，使广大业主支付了对价的土地被金逸海公司所占有。综上，��求人民法院撤销三亚市规划局按照市领导要求颁发的〔2006〕195号《三亚市建设工程规划临时许可证》。
一审法院认为，首先，《中华人民共和国城乡规划法》第二十一条规定，城市、县人民政府城乡规划主管部门和镇人民政府可以组织编制重要地块的修建性详细规划。第四十条第一款规定，在城市、镇规划区内进行建筑物、构筑物、道路、管线和其他工程建设的，建设单位或者个人应当向城市、县人民政府城乡规划主管部门或者省、自治区、直辖市人民政府确定的镇人民政府申请办理建设工程规划许可证。可见，三亚���规划局具有组织编制重要地块的修建性详细规划及颁发建设工程规划许可证的法定职责。其次，《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。《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》第十九条规定，当事人不服经上级行政机关批准的具体行政行为，向人民法院提起诉讼的，应当以在对外发生法律效力的文书上署名的机关为被告。本案中，编号为〔2006〕195号的《三亚市建设工程规划临时许可证》是由三亚市规划局署名盖章后对外发生法律效力的。因此，蒋淑玉、宋洪涛、张英浩、吴彦滨、李广福对该颁证行为不服，根据上述法律规定，应当以三亚市规划局为被告，其以三亚市政府为被告不符合法律规定。一审法院立案庭在接受本案起���材料时，已向蒋淑玉、宋洪涛、张英浩、吴彦滨、李广福明确释明三亚市政府不是本案适格被告，应当予以变更，但蒋淑玉、宋洪涛、张英浩、吴彦滨、李广福拒绝变更。一审法院依照《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之规定，裁定驳回蒋淑玉、宋洪涛、张英浩、吴彦滨、李广福对三亚市政府的起诉。
蒋淑玉、宋洪涛、张英浩、吴彦滨、李广福不服一审裁定，上诉称，一审法院在本案未经审理的情况下直接裁定驳回上诉人对三亚市政府的起诉，严重侵害了上���人寻求司法途径解决行政违法行为的诉讼权利。三亚市规划局作为三亚市政府的职能部门，其作出对外发生法律效力的文件时需报三亚市政府批准或者备案。本案有明确的证据显示，〔2006〕195号《三亚市建设工程规划临时许可证》之所以能被批准，是由于三亚市政府某领导的特别授权，该行政行为是由二被上诉人共同作出的。一审法院将导致上诉人实际权利受损的行政行为理解为颁发临时许可证的行为，属于认定事实及适用法律错误。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。
被上诉人三亚市政府答辩称，上诉人诉请撤销的许可证是三亚市规划局颁发的，三亚市政府不是适格被告。上诉人之所以将三亚市政府列为被告，是为了提高审级。一审裁定驳回上诉人对三亚市政府的起诉正确，请求二审法院予以维持。
被上诉人三亚市规划局答辩称，涉案许可证是三亚市规划局颁发的，三亚市规划局具有核发此类规划许可证的法定职责，三亚市政府不是本案适格被告。一审裁定驳回上诉人对三亚市政府的起诉正确，请求二审法院予以维持。
本院认为，一、关于三亚市政府是否是本案适格被告的问题。《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。”《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》第十九条规定：”当事人不服经上级行政机关批准的具体行政行为，向人民法院提起诉讼的，应当以在对外发生法律效力的文书上署名的机关为被告。”本案上诉人诉请撤销的〔2006〕195号《三亚市建设工程规划临时许可证》是由三亚市规划局作出并署名盖章后对外发生法���效力的，上诉人对该颁证行为不服，应当以三亚市规划局为被告，三亚市政府不是本案适格被告。一审裁定关于三亚市政府不是本案适格被告的认定正确。二、关于一审法院未开庭审理迳行裁定驳回上诉人对三亚市政府的起诉是否正确的问题。《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。该条第二款规定：”人民法院经过阅卷、调查和询问当事人，认为不需要开庭审理的，可以迳行裁定驳回起诉。”一审法院立案庭在接受本案起诉材料时，已通过询问当事人的方式向上诉人释明三亚市政府不是本案适格被告，应当予以变更。在上诉人拒绝变更的情况下，一审法院未开庭审理迳行裁定驳回上诉人对三亚市政府的起诉符合法律规定。综上，一审裁定驳回上诉人对三亚市政府的起诉并无不当，应予维持。上诉人的上诉理由缺乏事实和法律依据，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
审判员凌杰泉
审判员魏文豪
法官助理李宗帅
法官助理李宗帅
书记员闵泽帅
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