海南省高级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼行终81号
上诉人（原审原告）吴坤炳，男，1944年8月17日出生，汉族，住海口市。
被上诉人（原审被告）海口市龙华区人民政府，住所地海口市龙昆北路29号。
法定代表人凌云，该区区长。
委托代理人吴子荣，该区环境综合整治工作领导小组办公室工作人员。
委托代理人李哲良，海南宝岛律师事务所律师。
原审第三人王娴，女，1976年1月4日出生，汉族，住海口市。
原审第三人王思雅（曾用名王钻），女，1977年2月25日出生，汉族，住海口市。
原审第三人王思雅的委托代理人陈玉娟，女，1954年9月10日出生，汉族，住海口市，系原审第三人王娴、王思雅的母亲。
上诉人吴坤炳因其诉被上诉人海口市龙华区人民政府（以下简称龙华区政府）及原审第三人王娴、王思雅房屋管理行政批复一案，不服海口市中级人民法院作出的（2016）琼01行初277号行政判决，向本院提起上诉。本院依法组成合议庭，对本案进行了审理。本案现已审理终结。
本案被诉行政行为：2015年9月25日，海口市龙华区环境综合整治工作领导小组办公室（以下简称区环境综治办）向龙华区滨海街道办事处（以下简称滨海街道办）作出海龙综整办[2015]584号《关于黄亚财等9户村（居）民宅基地自建及拆除危房重建的批复》（以下简称584号批复）。主要内容：一、同意将王娴、王思雅等9户村（居）民的建房申请向市违法建筑综合整治工作指挥部办公室（以下简称市违建综治办）报备。二、由你单位对该9户村（居）民建房行为进行监管，只能在自有土地（拆除危房原址）新建4层（含）以下、400平方米（含）以内的房屋。如超范围建设及挪位建设，由你单位依法组织拆除或处置，依据《海口市防控和查处违法建筑责任追究暂行办法》追究相关责任人责任。三、如建房产生邻里纠纷，由你单位会同司法所做好调解工作。四、备案后所兴建房屋参照《海口市主城区个人住宅规划建设管理办法》等有关规定，底层层高不超过4米、二层及以上层高不超过3.3米，并按海口市《分类处置试点村（居）解决原有宅基地使用、危房改造等历史遗留问题申报备案流程》（以下简称《申报备案流程》）要求，在2015年10月31日前完工，逾期无效。五、由你单位督促、落实建房业主搞好防护，以及聘请正规施工单位严格按地勘和设计图纸施工，否则造成邻里损失或施工安全问题以及由此产生的法律责任均由业主自行负责。六、备案后建成的新建筑与分类处置中暂缓拆除的建筑性质一致。
原审查明，2012年10月30日，龙华中社区居委会出具《证明》，证明王娴、王思雅的龙昆下村34号房屋”有多处裂痕，曾在2011年10月自然灾害损伤，有一房角倒塌，情况属实”。2014年8月4日，市违建综治办印发《申报备案流程》，要求各区、各成员单位遵照执行。《申报备案流程》第一条规定了分类处置试点村（居）解决原有宅基地使用、危房改造等历史遗留问题申报备案的流程，第二条规定了申请必备的材料，第四条规定”以上流程不能作为个人宅基地发证使用，备案后建成的新建筑与分类处置中暂缓拆除的建筑性质一致”。同年10月9日，王娴、王思雅向滨海街道办递交《危房拆除改建申请》，申请将危房拆除重建，并保证建房不超过四层且不超过400平方米。同月10日，滨海街道办就王娴、王思雅的危房改造申请进行公示。同月29日，滨海街道办将龙华中社区居委会对王娴、王思雅申请危房改造的报送意见予以公示。2015年2月15日，王娴、王思雅向龙华中社区居委会提交《申请书》，申请在原址重建4层、占地面积98.62平方米、总建筑面积360.96平方米的房屋，并提交了居民身份证、《国有土地使用证》《村（居）建设用地平面图》等相关材料。同年4月29日，龙华区违法建筑治理工作指挥部发布公示，称龙昆下村34号居民王娴、王思雅申请在原址重建占地98.62平方米、四层、总建筑面积约360.96平方米的房屋，经所辖村、街道办审核，拟按《申报备案流程》要求，同意予以重建。2015年6月25日，龙华中社区居委会向龙华区政府出具证明称”龙昆下村34号的房屋在2012年未拆之前与西边龙昆下村78号房屋墙面靠在一起，房屋之间没有空间”。2015年9月25日，海口市龙华区违法建筑综合整治工作指挥部办公室（以下简称区违建综治办）向滨海街道办作出584号批复，并由区环境综治办代章发文。584号批复作出后，王娴、王思雅在龙昆下村34号原址上重建房屋，吴坤炳因认为王娴、王思雅建房挖地基造成其房屋出现裂痕且所建房屋侵害其通风、采光权，遂成讼。
原审另查明：区违建综治办是从龙华区政府各部门抽调人员组成的临时机构，该办公室没有公章，由区环境综治办代章发文。区环境综治办亦是龙华区政府的临时工作机构，是市违建综治办的下级对口机构，负责组织完成市违建综治办关于分类处置试点工作部署和安排的任务。
原审认为，一、关于吴坤炳是否具有本案原告主体资格的问题。《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》第十三条第（一）项规定，被诉的行政行为涉及其相邻权的，公民、法人或者其他组织可以依法提起行政诉讼。吴坤炳因认为584号批复批准同意其邻居即王娴、王思雅建房，导致其通风、采光等权益受到影响而提起本案诉讼，符合上述规定，故其是本案适格原告。二、关于584号批复是否具有可诉性的问题。在庭审中，龙华区政府确认在实际操作中，584号批复所针对的9户居民可以依据批复建房，不需要其他部门再行文决定，王娴、王思雅亦确认其建房的依据是584号批复。因此，584号批复实际上已经对相关当事人的权利义务直接产生影响，具有可诉性。三、关于584号批复是否合法的问题。为解决海口市原有宅基地使用、危房改造等历史遗留问题，市违建综治办根据海口市人民政府的工作部署，印发《申报备案流程》，要求各区遵照执行。王娴、王思雅就其龙昆下村34号房屋向滨海街道办及龙华中社区居委会提出危房拆除改建申请，并提交了申请书以及居民身份证、《国有土地使用证》、居委会《证明》等相关材料，其所提供的材料符合《申报备案流程》的规定。经过对王娴、王思雅申请材料的审查并经龙华中社区居委会、滨海街道办以及区违建综治办公示后，区环境综治办代章发文作出584号批复，其程序符合《申报备案流程》的规定。综上，吴坤炳的诉讼主张不能成立，如其认为王娴、王思雅的建房行为对其相关民事权益造成损害，可以通过民事诉讼等其他救济途径解决。依照《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》第五十六条第（四）项之规定，判决驳回吴坤炳的诉讼请求。案件受理费50元，由吴坤炳负担。
上诉人吴坤炳上诉称，原审判决认定事实不清，适用法律错误，违背了人民法院审理行政案件的基本原则。一、被诉行政行为越权，区环境综治办是临时机构，其发文作出584号批复超越职权。二、被诉行政行为没有依据。市违建综治办是政府设立的临时机构，其所印发的《申报备案流程》不是法律、行政法规、地方性法规、部门规章和规范性文件。三、被诉行政行为违法。（一）584号批复是行政许可行为，而区环境综治办是临时机构，违反了《中华人民共和国行政许可法》。（二）区违建综治办明知王娴、王思雅的建房行为违反规划许可且被责令停工却同意其继续建设，违反了《海南省查处违法建筑若干规定》第九条的规定。（三）584号批复同意王娴、王思雅违法建房，影响了吴坤炳户的通风、采光，违反了《中华人民共和国物权法》。四、584号批复侵犯了吴坤炳户的相邻权、财产权、人身权，龙华区政府应承担赔偿责任。原审判决称通过民事诉讼寻求法律救济不当。综上，请求撤销原判，撤销584号批复。
被上诉人龙华区政府答辩称，原审判决认定事实清楚，适用法律正确，程序合法，上诉人吴坤炳的上诉请求和理由均不成立。一、584号批复是区”五大办”根据市”五大办”的工作安排与部署，依照规定的程序履行职责，不存在超越职权。二、584号批复是同意将9户居民的情况向上级申报备案，不是批准9户居民建房，是否符合备案条件、是否同意备案最终由上级决定，因而不属于行政许可。三、区”五大办”只是负责协调各职能部门打违工作的临时机构，不负有直接查处违建行为的职能。四、584号批复是行政机关上下级之间的内部行文，不涉及技术数据。通风、采光权侵权纠纷不属于行政争议。五、市”五大办”印发《申报备案流程》是其履行工作职责，对分类处置试点工作的安排和部署。区”五大办”依据《申报备案流程》的要求作出584号批复，是对上级工作任务的贯彻落实。吴坤炳如认为《申报备案流程》不合法，应通过其它程序主张。六、584号批复没有涉及房屋间距问题，龙华区政府不是相邻权纠纷的当事人，吴坤炳主张龙华区政府承担侵权赔偿责任没有法律依据。综上，请求驳回上诉，维持原判。
原审第三人王娴、王思雅陈述称，同意龙华区政府的答辩意见。补充意见：我家老屋建造于1982年，后建房的三家邻居在建房时皆未曾考虑我家的采光问题。吴坤炳在竞买龙昆下村78号房屋时查看过现场，自愿购买。在房屋重建过程中，我方注重邻里和谐，主动作出退线安排，不存在吴坤炳所说的建筑密度100%、无退线距离、窗子无法打开、没有阳光的情况。综上，请求驳回上诉，维持原判。
在本院审理过程中，本院依法向王娴、王思雅调取建字第460100201300030号（私宅类）《建设工程规划许可证》。该证记载，自领取本证之日起一年内须到建设部门办理施工报建手续，否则核发的建设工程规划许可证无效。发证机关：海口市规划局。发证日期：2013年3月27日。
二审查明的其它事实与原审判决查明的事实一致，本院予以确认。
本院认为，《申报备案流程》是由市违建综治办印发的分类处置解决海口市××区（居）原有宅基地使用、危房改造等历史遗留问题的规范性文件，该《申报备案流程》第四条规定”以上流程不能作为个人宅基地发证使用，备案后建成的新建筑与分类处置中暂缓拆除的建筑性质一致”，584号批复第六条重申”备案后建成的新建筑与分类处置中暂缓拆除的建筑性质一致”。因此，《申报备案流程》和据此所作出的584号批复，其本质上是同意将涉案宅基地建房问题上报备案，不产生行政许可的效力，不能取代法律、法规明确规定的城镇居民新建房屋必须具备的基本条件和必须履行的基本程序，因而并不违反相关法律、法规的禁止性规定。区环境综治办作为龙华区政府组建的临时机构，执行专项任务，行使行政职权，其代章发文作出584号批复，对外由龙华区政府承担法律责任，并未超越职权。王娴、王思雅原持有的《建设工程规划许可证》颁发于2013年3月27日，2015年9月25日，区环境综治办代章发文作出584号批复时，该《建设工程规划许可证》已过有效期，吴坤炳主张王娴、王思雅应按照该《建设工程规划许可证》规定的容积率、建筑密度、后退用地红线距离等建设房屋，认为584号批复违反《海南省查处违法建筑若干规定》第九条的规定，缺乏事实根据。从584号批复的作出过程上，王娴、王思雅依据《申报备案流程》的规定，提交申请书、《国有土地使用证》等相关材料。经龙华中社区居委会、滨海街道办以及区违建综治办逐级公示，区环境综治办代章发文作出584号批复，程序上亦符合《申报备案流程》的规定。至于王娴、王思雅所建房屋是否侵犯吴坤炳的通风、采光权并造成其房屋受损的问题，不属于本案行政审判的审理范围。综上，原审判决认定事实清楚，适用法律正确，程序合法，应予维持。吴坤炳的上诉请求和理由不能成立，应予驳回。依照《中华人民共和国行政诉讼法》第八十九条第一款第（一）项的规定，判决如下：
驳回上诉，维持原判。
二审案件受理费50元，由上诉人吴坤炳负担。
本判决为终审判决。
审判长聂海波
审判员王华
审判员吴天月
书记员井泉旺
附相关法律条文：
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\"裁判日期\", key: \"trialDate\", value: \"2016-06-14\" },{ name: \"当事人\", key:
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[{法规名称:\'《中华人民共和国民法通则》\',Items:[{法条名称:\'第一百零八条\',法条内容:\' 第一百零八条
债务应当清偿。暂时无力偿还的，经债权人同意或者人民法院裁决，可以由债务人分期偿还。有能力偿还拒不偿还的，由人民法院判决强制偿还。
\'}]},{法规名称:\'《中华人民共和国担保法》\',Items:[{法条名称:\'第十九条\',法条内容:\'
第十九条 当事人对保证方式没有约定或者约定不明确的，按照连带责任保证承担保证责任。
\'},{法条名称:\'第二十一条第一款\',法条内容:\'
第二十一条 保证担保的范围包括主债权及利息、违约金、损害赔偿金和实现债权的费用。保证合同另有约定的，按照约定。
当事人对保证担保的范围没有约定或者约定不明确的，保证人应当对全部债务承担责任。
\'}]},{法规名称:\'《最高人民法院关于民事诉讼证据的若干规定》\',Items:[{法条名称:\'第二条第一款\',法条内容:\'
第二条 当事人对自己提出的诉讼请求所依据的事实或者反驳对方诉讼请求所依据的事实有责任提供证据加以证明。
没有证据或者证据不足以证明当事人的事实主张的，由负有举证责任的当事人承担不利后果。
\'}]}]};if
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