海南省三亚市中级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼02行终11号
上诉人（原审原告）王超，男，1968年10月20日出生，汉族，住三亚市。
委托代理人孙臣，广东财富东方律师事务所律师。
被上诉人（原审被告）三亚市天涯区综合行政执法局，住所地三亚市凤凰路319号。
法定代表人谭云权，该局局长。
委托代理人符文基，该局工作人员。
委托代理人陈忠媛，海南惠海律师事务所律师。
上诉人王超因其诉被上诉人三亚市天涯区综合行政执法局（以下简称天涯区执法局）建设规划行政处罚纠纷一案，不服三亚市城郊人民法院作出的（2016）琼0271行初208号行政判决，向本院提起上诉。本院依法组成合议庭，公开开庭审理了本案。上诉人王超及其委托代理人孙臣，被上诉人天涯区执法局委托代理人陈忠媛、符文基到庭参加诉讼。本案现已审理终结。
被诉行政行为：2016年6月16日，天涯区执法局对王超作出天综执（五大队）罚决字[2016]2-049号《行政处罚决定书》（以下简称2-049号处罚决定），以王超未取得建设工程规划许可证，擅自在三亚市××区旁）搭建一处铁皮棚的行为违法为由，决定责令王超自该处罚决定送达之日起三日内自行拆除上述违法建设建筑物。
原审查明，王超在其大哥王华卫和姐夫陈海养××区旁）的农村责任田承包地上搭建铁皮棚一座，占地面积337.27平方米，建筑面积337.27平方米。2016年4月26日，天涯区执法局执法人员经巡查认为王超搭建的铁皮棚未取得建设工程规划许可证，遂在询问当事人并告知相关权利之后作出2-049号处罚决定，决定拆除王超涉案的337.27平方米铁皮棚。王超不服，认为其是在1998年搭建的铁皮棚，不应适用《中华人民共和国城乡规划法》（以下简称《城乡规划法》）和《海南省城乡规划条例》的规定，故诉至法院，要求撤销2-049号处罚决定。
原审认为，案件争议的焦点是在农村承包的责任田上能否搭建铁皮棚经营餐饮生意。《中华人民共和国农村土地承包法》（以下简称《农村土地承包法》）第八条规定：”农村土地承包应当遵守法律......未经依法批准不得将承包地用于非农建设”。因此，王超在农村责任田上将农业承包地用于非农建设，经营餐饮生意，违反了上述法律的规定。天涯区执法局认为王超未取得建设工程规划许可证而擅自搭建铁皮棚，适用《城乡规划法》第四十四条和《海南省城乡规划条例》第四十六条的规定，作出2-049号处罚决定，认定事实清楚，适用法律正确，应予支持。依照《中华人民共和国行政诉讼法》第六十九条的规定，原审判决：驳回王超的诉讼请求；案件受理费50元，由王超负担。
上诉人王超上诉称，被上诉人作出的2-049号处罚决定侵犯了上诉人的合法权益，依法应予撤销。原审判决认定事实和适用法律错误。理由如下：一、被上诉人作出的行政处罚没有充分的事实根据和法律依据。第一轮农村土地承包时，上诉人的大哥王华卫和姐夫陈海养分别承包了××区旁）的0.6亩和2亩土地（即中交田园地）。1996年，王华卫在前述土地上建设一间铁皮房屋居住并经营家庭小作坊。1998年，王华卫考虑到上诉人生活困难，将该铁皮房屋无偿交给上诉人经营餐饮生意至今。期间，上诉人办理了《营业执照》，自2002年起在该铁皮房屋处经营”南国饭店”，后于2012年更名为”港门母餐饮店”，从来没有任何部门对上诉人使用该铁皮房屋提出过异议。2009年，曾有私人老板借用中石油海南分公司的名义与上诉人签订《土地租赁协议》，租用2.05亩前述土地，但其后一直没有使用该土地。2016年6月16日，被上诉人作出2-049号处罚决定，认定上诉人搭建铁皮房屋的行为违反《城乡规划法》和《海南省城乡规划条例》的有关规定，责令上诉人自行拆除前述铁皮房屋。上诉人认为，前述铁皮房屋建成时《城乡规划法》和《海南省城乡规划条例》尚未实施，应当不属于违法建筑物，根据法不溯及既往的原则，被上诉人作出的行政处罚没有法律依据。二、被上诉人作出的行政处罚行为是某人想利用天涯区执法局的行政权力拆除上诉人使用的铁皮房屋，以达到非法侵占上诉人土地的目的，属滥用职权的行为。三、前述铁皮房屋的占地范围只是承包地中的一小部分，且距离225国道约40米，不影响乡容乡貌和周边居民生活。四、本案不应适用《农村土地承包法》的相关规定进行处理。前述铁皮房屋周边早已建造了很多居民房屋，已不适宜农业用途，事实上已不是农村责任田。原审法院以上诉人的铁皮房屋建设在农村责任田上，没有取得建设许可证和规划许可证，违反了《农村土地承包法》、《城乡规划法》及《海南省城乡规划条例》的相关规定为由，判决驳回上诉人的诉讼请求错误。请求二审法院撤销原审判决和天涯区执法局作出的2-049号处罚决定，并承担本案诉讼费用。
被上诉人天涯区执法局辩称，一、上诉人不能证实其涉案铁皮房屋建于2008年《城乡规划法》实施之前。二、即便在《城乡规划法》实施前建设房屋也要遵循《中华人民共和国城市规划法》、《中华人民共和国土地管理法》以及《农村土地承包法》等相关法律法规的规定。三、被上诉人巡查时，上诉人未能提供涉案房屋合法的报建手续和经营证照，处于违法经营状态中，被上诉人依据现行的《城乡规划法》和《海南省城乡规划条例》认定涉案房屋为违法建筑并作出处罚符合三亚市创建国家卫生城市的基本公共利益。四、涉案房屋用地属于集体土地，在集体土地上进行非农建设需要经过严格的报批程序，但上诉人并未取得合法报批手续，违反了《中华人民共和国土地管理法》等相关法律的规定。五、上诉人以涉案房屋用地附近已建有多处居民房屋为由主张涉案房屋合法，理由不能成立，判断涉案房屋是否合法应看其是否符合我国法律的规定。
本院经审理查明：2016年4月26日，天涯区执法局执法人员经巡查发现王超未经取得建设工程规划许可证，擅自在天涯区马岭社区新村东三街（225国道旁）搭建铁皮棚一处，占地面积为337.27平方米,建筑总面积为337.27平方米。遂于当日对王超作出并送达了天综执（五大队）询字[2016]2-049号《接受调查询问通知书》，通知王超携带个人身份证、土地房屋权证及建设工程规划许可证等相关报建资料到该局五大队办公室接受询问。2016年4月29日，天涯区执法局对王超作出天综执（五大队）罚告字[2016]2-049号《行政处罚告知书》，告知王超拟对其作出责令限期拆除前述违法建设建筑物的行政处罚的事实、理由、依据以及其所享有的陈述、申辩和要求举行听证的权利。2016年5月4日，王超签收了该处罚告知书。2016年6月16日，天涯区执法局对王超作出并送达了2-049号处罚决定，认定王超未取得建设工程规划许可证，在天涯区马岭社区新村东三街（225国道旁）擅自搭建一处铁皮棚（建筑状态为：地上一层，占地面积为337.27平方米,建筑总面积为337.27平方米）的行为违反了《城乡规划法》第四十四条、《海南省城乡规划条例》第四十六条之规定，依据《城乡规划法》第六十六条和《海南省城乡规划条例》第七十五条之规定，决定责令王超自该决定书送达之日起三日内自行拆除前述违法建设建筑物。同时，天涯区执法局在该处罚决定中还告知了王超申请行政复议和提起行政诉讼的法定期限。王超对该处罚决定不服，于2016年6月20日提起行政诉讼，请求撤销天涯区执法局作出的2-049号处罚决定。
本院又查明，涉案铁皮房屋用地属于农村承包地。目前，涉案房屋尚未被拆除，由王超经营”港门母餐饮店”。
另经本院庭审调查，王超没有充分证据证明其房屋建设于1996年，也未能提交”南国饭店”的《营业执照》等工商登记资料证明其自2002年起已在涉案铁皮房屋处经营饭店的事实。此外，王超承认涉案铁皮房屋不是永久性建筑，有一部分在近两年曾翻新过。
本院认为，本案的争议焦点是被上诉人天涯区执法局作出2-049号处罚决定的行政行为依据是否充分，程序是否合法，适用法律是否正确。根据《城乡规划法》第四十四条的规定，在城市、镇规划区内进行临时建设的，应当经城市、县人民政府城乡规划主管部门批准。根据《海南省城乡规划条例》第四十六条的规定，在城市、镇、乡及特定地区规划区内进行临时建设，不得影响城乡规划的实施。进行临时建设应当经市、县、自治县人民政府城乡规划主管部门批准，使用期限不得超过2年。本案中，涉案铁皮房屋用地属于农村承包地，未经依法批准不得用于非农建设。上诉人王超未经审批许可，未取得建设工程规划许可证，擅自搭建涉案铁皮房屋，其建设行为违反了《城乡规划法》第四十四条和《海南省城乡规划条例》第四十六条的前述规定。被上诉人天涯区执法局经向上诉人王超调查询问，并告知上诉人拟对其作出行政处罚的事实、理由、依据以及陈述、申辩和要求听证的权利之后，依据《城乡规划法》第六十六条、《海南省城乡规划条例》第七十五条的规定，对上诉人作出并送达2-049号处罚决定，认定上诉人所建铁皮房屋为违法建筑物，并责令其在一定期限内自行拆除该违法建筑物，处罚行为依据充分，程序合法，适用法律正确。
上诉人王超主张涉案铁皮房屋建于1996年，其自2002年起在该房屋处经营”南国饭店”并办理了《营业执照》，被上诉人依据房屋建成时尚未实施的《城乡规划法》和《海南省城乡规划条例》的相关规定作出2-049号处罚决定适用法律错误。经查，首先，上诉人所提交的《完善联产承包责任制合同手册》、《土地租赁协议》及房屋照片等证据并不能充分证明其1996年建设涉案铁皮房屋的事实。其次，上诉人在庭审时承认涉案铁皮房屋不是永久性建筑，有一部分在近两年曾翻新过。再次，上诉人称其自2002年起已在涉案铁皮房屋处经营”南国饭店”并办理了《营业执照》，却未能提交《营业执照》等相关经营证照材料予以证明。因此，上诉人前述主张没有充分的事实根据和法律依据，本院依法不予支持。
综上所述，被上诉人天涯区执法局作出2-049号处罚决定的行政行为依据充分，适用法律、法规正确，符合法定程序。原审判决认定事实虽然不够完整，但判决结果正确，依法应予维持。上诉人王超的上诉请求及理由不能成立，本院依法不予支持。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，判决如下：
驳回上诉，维持原判。
二审案件受理费50元，由上诉人王超负担。
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
二〇一七年三月二十七日
书记员崔杨洋
附：本判决适用的相关法律、法规及司法解释依据
中华人民共和国城乡规划法
第四十四条在城市、镇规划区内进行临时建设的，应当经城市、县人民政府城乡规划主管部门批准。临时建设影响近期建设规划或者控制性详细规划的实施以及交通、市容、安全等的，不得批准。
临时建设应当在批准的使用期限内自行拆除。
临时建设和临时用地规划管理的具体办法，由省、自治区、直辖市人民政府制定。
第六十六条建设单位或者个人有下列行为之一的，由所在地城市、县人民政府城乡规划主管部门责令限期拆除，可以并处临时建设工程造价一倍以下的罚款：
（一）未经批准进行临时建设的；
（二）未按照批准内容进行临时建设的；
（三）临时建筑物、构筑物超过批准期限不拆除的。
海南省城乡规划条例
第四十六条在城市、镇、乡及特定地区规划区内进行临时建设，不得影响城乡规划的实施。
进行临时建设应当经市、县、自治县人民政府城乡规划主管部门批准，使用期限不得超过2年；需要延期的，应当向市、县、自治县城乡规划主管部门申请延期，经批准可以延期1次，最长期限不得超过1年。
临时建设应当在批准使用期限届满前自行拆除；逾期不拆除的，由市、县、自治县人民政府组织或者责成有关部门拆除，拆除费用由临时建设的单位或者个人承担。
临时建设使用期限未届满，因国家或者省重点工程建设需要收回临时用地或者拆除临时建筑物、构筑物的，应当依法予以补偿。
第七十五条建设单位或者个人有下列行为之一的，由所在地市、县、自治县人民政府城乡规划主管部门责令限期拆除，可以并处临时建设工程造价一倍以下的罚款：
（一）未经批准进行临时建设的；
（二）未按照批准内容进行临时建设的；
（三）临时建筑物、构筑物超过批准期限不拆除的。
中华人民共和国行政诉讼法
第八十九条人民法院审理上诉案件，按照下列情形，分别处理：
（一）原判决、裁定认定事实清楚，适用法律、法规正确的，判决或者裁定驳回上诉，维持原判决、裁定；
（二）原判决、裁定认定事实错误或者适用法律、法规错误的，依法改判、撤销或者变更；
（三）原判决认定基本事实不清、证据不足的，发回原审人民法院重审，或者查清事实后改判；
（四）原判决遗漏当事人或者违法缺席判决等严重违反法定程序的，裁定撤销原判决，发回原审人民法院重审。
原审人民法院对发回重审的案件作出判决后，当事人提起上诉的，第二审人民法院不得再次发回重审。
人民法院审理上诉案件，需要改变原审判决的，应当同时对被诉行政行为作出判决。
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[{法规名称:\'《中华人民共和国刑法（1997年）》\',Items:[{法条名称:\'第七十八条第二款\',法条内容:\'
减刑以后实际执行的刑期不能少于下列期限：[ly] （一）判处管制、拘役、有期徒刑的，不能少于原判刑期的二分之一；[ly]
（二）判处无期徒刑的，不能少于十三年；[ly]
（三）人民法院依照本法第五十条第二款规定限制减刑的死刑缓期执行的犯罪分子，缓期执行期满后依法减为无期徒刑的，不能少于二十五年，缓期执行期满后依法减为二十五年有期徒刑的，不能少于二十年。[ly]\'},{法条名称:\'第七十八条第一款\',法条内容:\'
第七十八条
被判处管制、拘役、有期徒刑、无期徒刑的犯罪分子，在执行期间，如果认真遵守监规，接受教育改造，确有悔改表现的，或者有立功表现的，可以减刑；有下列重大立功表现之一的，应当减刑：[ly]
（一）阻止他人重大犯罪活动的；[ly] （二）检举监狱内外重大犯罪活动，经查证属实的；[ly] （三）有发明创造或者重大技术革新的；[ly]
（四）在日常生产、生活中舍己救人的；[ly] （五）在抗御自然灾害或者排除重大事故中，有突出表现的；[ly] （六）对国家和社会有其他重大贡献的。[ly]
减刑以后实际执行的刑期，判处管制、拘役、有期徒刑的，不能少于原判刑期的二分之一；判处无期徒刑的，不能少于十年。[ly]\'}]}]};if
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