海南省高级人民法院
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（2017）琼行审复9号
海南省高级人民法院
行政裁定书
（2017）琼行审复9号
复议申请人(原申请执行人)：昌江黎族自治县生态环境保护局，住所地昌江黎族自治县（以下简称昌江县）石碌镇人民北路169号。
法定代表人：陈学智，该局局长。
委托诉讼代理人：韦琼涛，该局生态环境保护监察大队监察员。
委托诉讼代理人：曾德升，该局环境监督管理股股长。
被执行人：海南合群水产有限公司，住所地海南省昌江县海尾镇梧高村。
负责人：朱邵琳，总经理。
申请复议人昌江黎族自治县生态环境保护局（以下简称昌江环保局）不服海南省第二中级人民法院（以下简称一审法院）于2017年5月23日作出的（2017）琼97行审15号行政裁定（以下简称原审裁定），向本院提出复议申请。本院于2017年8月25日受理，并依法组成以审判员张爽为审判长、审判员刘彦贵和冯坤为成员的合议庭进行审理。现本案已审理终结。
2016年5月23日，昌江环保局认定海南合群水产有限公司位于××县的石斑鱼养殖场自建成投苗养殖以来，未办理建设项目环境影响评价手续而违反了《中华人民共和国环境保护法》（以下简称环保法）第十九条、《中华人民共和国环境影响评价法》（以下简称环评法）第二十五条的规定，依据环保法第六十一条、环评法第三十一条的规定，该局作出昌环罚决字[2016]26号《行政处罚决定书》（以下简称处罚决定书），责令海南合群水产有限公司的石斑鱼养殖场停止建设，恢复原状，并处以罚款五万元；如逾期不缴纳罚款，每日将按罚款数额的百分之三加处罚款。该决定书作出后，在法定期限内，海南合群水产有限公司既未申请行政复议又未向人民法院提起诉讼，也不履行处罚决定。经昌江环保局催告，仍没有履行，故该局向一审法院申请强制执行。一审法院认为，昌江环保局未依据环评法第三十一条的规定先责令海南合群水产有限公司限期补办手续，而是直接作出罚款处罚，不符合法律规定，故昌江环保局作出处罚决定书的程序不合法。一审法院根照《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》第九十五条第(三)项之规定，裁定不准予强制执行处罚决定书。
申请复议人昌江环保局的行政复议请求：依法撤销原审裁定，强制执行处罚决定书。事实和理由：1、昌江环保局适用对海南合群水产有限公司处以罚款五万元，并没有违反法定程序。一是环保法第六十一条明确规定，建设单位未依法提交建设项目环境影响评价文件或者环境影响评价文件未经批准，擅自开工建设的，由负有环境保护监督管理职责的部门责令停止建设，处以罚款，并可以责令恢复原状。二是尽管环评法第三十一条第一款规定，建设单位未依法报批建设项目环境影响评价文件，或者未依照本法第二十四条的规定重新报批或者报请重新审核环境影响评价文件，擅自开工建设的，由有权审批该项目环境影响评价文件的环境保护行政主管部门责令停止建设，限期补办手续；逾期不补办手续的，可以处五万元以上二十万元以下的罚款；但该条第二款规定，建设项目环境影响评价文件未经批准或者未经原审批部门重新审核同意，建设单位擅自开工建设的，由有权审批该项目环境影响评价文件的环境保护行政主管部门责令停止建设，可以处五万元以上二十万元以下的罚款。昌江环保局对海南合群水产有限公司处以罚款五万元，实际适用的是环评法第三十一条第二款规定，适用法律正确，并未违反法定程序。2、环境影响评价制度的根本功能是预防为主、控制源头，在项目已经建成并已实际投入使用的情况下，一审法院仍要求昌江环保局按环评法第三十一条第一款的规定，再责令海南合群水产有限公司限期补办手续，失去了事先预防的作用。
本院经审查认为，海南合群水产有限公司未依法进行环境影响评价，而在××县兴建养殖塘并投苗养殖，该行为违反环保法第十九条、环评法第二十五条的规定。昌江环保局对该事实认定清楚、证据充分。环保法第六十一条明确规定，未经环境影响评价而擅自开工建设的，环境保护监督管理部门责令停止建设，处以罚款。环评法第三十一条第二款明确规定，未经环境影响评价而擅自开工建设的，环境保护部门责令停止建设，可以处五万元以上二十万元以下的罚款。本案中，海南合群水产有限公司在未依法进行环境影响评价的情况下，建成养殖塘并实际投入使用，该养殖塘并非备建或在建工程，要求昌江环保局依环评法第三十一条第一款的规定责令海南合群水产有限公司限期补办手续已无任何实际意义。昌江环保局依据环评法第三十一条第二款的规定，对海南合群水产有限公司处以罚款五万元，适用法律正确，程序并无不当。昌江环保局的行政处罚决定书并不存在《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》第九十五条第(三)项的其他明显违法并损害被执行人合法权益的事由，一审法院认定处罚决定程序不合法，没有事实依据，应予以纠正。昌江环保局的复议请求成立，应予支持。
综上所述，原审裁定认定昌江环保局作出处罚决定书程序违法的事实错误，依照《中华人民共和国行政强制法》第五十八条第三款的规定，裁定如下：
一、撤销海南省第二中级人民法院于2017年5月23日作出的（2017）琼97行审15号行政裁定；
二、准予强制执行昌江黎族自治县生态环境保护局作出的昌环罚决字[2016]26号《行政处罚决定书》，由昌江黎族自治县人民政府组织实施。
本裁定送达后即发生法律效力。
审判长张爽
审判员刘彦贵
审判员冯坤
二〇一七年九月十八日
书记员李文健
附：相关法律条文：
中华人民共和国环境保护法
第十九条编制有关开发利用规划，建设对环境有影响的项目，应当依法进行环境影响评价。
未依法进行环境影响评价的开发利用规划，不得组织实施；未依法进行环境影响评价的建设项目，不得开工建设。
第六十一条建设单位未依法提交建设项目环境影响评价文件或者环境影响评价文件未经批准，擅自开工建设的，由负有环境保护监督管理职责的部门责令停止建设，处以罚款，并可以责令恢复原状。
中华人民共和国环境影响评价法
第二十五条建设项目的环境影响评价文件未经法律规定的审批部门审查或者审查后未予批准的，该项目审批部门不得批准其建设，建设单位不得开工建设。
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