海南省三亚市中级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼02行终56号
上诉人（原审被告）三亚市吉阳区城市管理局，住所地三亚市吉阳区迎宾路483号。
法定代表人李灵，该局局长。
委托代理人朱丽红，该局工作人员。
委托代理人吴光维，海南三和元律师事务所律师。
被上诉人（原审原告）梁振花，女，1952年2月10日出生，黎族，住三亚市。
委托代理人王伟，男，1977年8月21日出生，黎族，住三亚市，系被上诉人梁振花儿子。
上诉人三亚市吉阳区城市管理局（以下简称吉阳区城管局）因被上诉人梁振花诉其建设规划行政处罚纠纷一案，不服三亚市城郊人民法院2017年5月25日作出的（2017）琼0271行初42号行政判决书，通过原审法院向本院提起上诉。本院受理后，依法组成合议庭，于2017年8月17日公开开庭审理了本案。上诉人吉阳区城管局的委托代理人朱丽红、吴光维，被上诉人委托代理人王伟到庭参加诉讼，本案现已审理终结。
本案被诉行政行为：2016年9月8日，上诉人吉阳区城管局对被上诉人梁振花作出三吉城管（一大队）罚决字[2016]第174号《三亚市吉阳区城市管理局行政处罚决定书》，责令被上诉人梁振花自行政处罚决定书送达之日起三日内拆除其位于三亚市吉阳区月川社区月川中路东二巷后段的一栋四层框架结构、占地面积50平方米、建筑面积为200平方米的房屋。2016年9月14日，上诉人吉阳区城管局对被上诉人梁振花作出并送达三吉城管（一大队）催告字[2016]第174号《三亚市吉阳区城市管理局强制执行催告书》和《三亚市吉阳区城市管理局关于责令拆除违法建筑及搬离物品的公告》，催告被上诉人梁振花于2016年9月18日24时前自行拆除违法建设建筑物。
原审法院查明，1981年2月17日，月川四队的王亚弟以784.30元向原通什农垦第一医院购买砖瓦住房两间。1984年8月21日，经原三亚市月川乡人民政府同意，王亚弟将该砖瓦房屋转让给同村村民梁振英和陈志强。1987年8月12日，梁振英又将该砖瓦房屋转让予其姐姐即原告梁振花。1988年6月，原告梁振花将该砖瓦房屋拆除，在原宅基地上建设了一栋占地面积50平方米，建筑面积200平方米，框架结构的四层房屋，当年11月建成入住至今。2016年6月15日，被告执法人员经检查，认定原告梁振花在三亚市吉阳区月川社区月川中路东二巷后段建设的该栋四层框架结构房屋，未经规划部门批准，未取得建设工程规划许可证。被告经制作现场检查记录、绘图拍照后，向原告梁振花作出并送达三吉城管（一大队Ⅰ）询字［2016］第7-6号《三亚市吉阳区城市管理局接受调查询问通知书》，通知原告梁振花携带本人身份证、户口本、土地使用权证及相关报建审批手续及相关授权委托书，于2016年6月21日9时到三亚市吉阳区城市管理局执法一大队接受询问，逾期将依法采取行政强制措施。原告梁振花逾期未接受调查询问。2016年8月18日，被告对原告梁振花作出并送达三吉城管（一大队）罚告字［2016］第174号《三亚市吉阳区城市管理局行政处罚告知书》，告知原告梁振花拟对其作出行政处罚的事实、理由和依据，以及申辩、陈述和要求听证的权利。2016年9月8日，被告对原告梁振花作出三吉城管（一大队）罚决字[2016]第174号《三亚市吉阳区城市管理局行政处罚决定书》，认定原告梁振花未经规划部门批准，未取得建设工程规划许可证，在三亚市吉阳区月川社区月川中路东二巷后段建设四层框架结构房屋的行为违反了《中华人民共和国城乡规划法》第四十条第一款，《海南省城乡规划条例》第三十七条的规定。依据《中华人民共和国城乡规划法》第六十四条，《海南省城乡规划条例》第七十三条、第七十六条的规定，决定责令原告梁振花自行政处罚决定书送达之日起三日内拆除上述违法建设建筑物。2016年9月14日，被告对原告梁振花作出并送达三吉城管（一大队）催告字[2016]第174号《三亚市吉阳区城市管理局强制执行催告书》和《三亚市吉阳区城市管理局关于责令拆除违法建筑及搬离物品的公告》，催告原告梁振花于2016年9月18日24时前履行三吉城管（一大队）罚决字[2016]第174号《三亚市吉阳区城市管理局行政处罚决定书》的义务，自行拆除违法建设建筑物，并告知原告梁振花有权进行陈述和申辩。通告相关人员于2016年9月18日24时前将物品搬离完毕，并且所有人员撤离出该违法建筑，否则由此造成的一切损失自行承担。原告梁振花不服，遂向本院提起诉讼，请求判决撤销三亚市吉阳区城市管理局2016年9月8日作出的三吉城管（一大队）罚决字[2016]第174号《三亚市吉阳区城市管理局行政处罚决定书》及2016年9月14日作出的三吉城管（一大队）催告字[2016]第174号《三亚市吉阳区城市管理局强制执行催告书》。
原审法院认为，被告对作出的被诉行政行为负有举证证明责任，应当提供作出被诉行政行为所认定事实的证据。被告主张原告建设涉案房屋时间为2008年以后，应承担举证证明责任，应提交证据予以证明。被告未能举证证明，没有事实根据，不予采信。原告主张其建房时间为1988年6月，被告未能举证反驳，根据现有有效证据，应认定原告建房时间为1988年6月。被告系以原告建设的涉案房屋为未经规划部门批准，未取得建设工程规划许可证建设的违法建筑，适用《中华人民共和国城乡规划法》和《海南省城乡规划条例》对原告进行处罚，依法应承担举证证明原告建设涉案房屋的时间为《中华人民共和国城乡规划法》和《海南省城乡规划条例》施行以后建设，即2008年1月1日以后建设。被告在未对原告建设的涉案房屋的建设时间作出认定，又未能举证证明涉案房屋的建设时间为2008年以后的情形下，认定原告建设涉案房屋违反《中华人民共和国城乡规划法》的规定，并对原告作出三吉城管（一大队）罚决字[2016]第174号《三亚市吉阳区城市管理局行政处罚决定书》，主要证据不足，没有事实根据。主要证据不足的行政行为，依法应予撤销。
被告对原告作出的三吉城管（一大队）催告字[2016]第174号《三亚市吉阳区城市管理局强制执行催告书》，根据《中华人民共和国行政强制法》第三十五条的规定，系被告作为行政管理有权机关，对其作出的被诉行政处罚决定书决定的事项作出强制执行决定前，对涉案房屋实施行政强制执行拆除前，通知原告自行搬迁的事先催告行为。该三吉城管（一大队）催告字[2016]第174号《三亚市吉阳区城市管理局强制执行催告书》本身不是行政处罚，也不是强制执行决定，未重新设定原告的权利义务，未改变原告的权利义务，原告可执行也可以不执行，对原告的权利义务不产生实际影响，对原告不具有法律约束力和强制力。根据《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》第一条第二款第（六）项关于对公民、法人或者其他组织权利义务不产生实际影响的行政行为不服提起诉讼的，不属于人民法院行政诉讼受案范围的规定，原告对三吉城管（一大队）催告字[2016]第174号《三亚市吉阳区城市管理局强制执行催告书》的起诉，不属于人民法院行政诉讼受案审查范围，不予审理。
综上所述，被诉三吉城管（一大队）罚决字[2016]第174号《三亚市吉阳区城市管理局行政处罚决定书》主要证据不足，认定事实不清，应予撤销。原告对三吉城管（一大队）催告字[2016]第174号《三亚市吉阳区城市管理局强制执行催告书》的起诉，不属于人民法院行政诉讼受案审查范围。依照《中华人民共和国行政诉讼法》第七十条第(一)项的规定，判决如下：撤销被告三亚市吉阳区城市管理局2016年9月8日作出的三吉城管（一大队）罚决字[2016]第174号《三亚市吉阳区城市管理局行政处罚决定书》。
上诉人吉阳区城管局上诉称，上诉人制作的三吉城管（一大队）罚决字[2016]第174号行政处罚决定书认定事实清楚，适用法律正确。一审判决认定建房时间为1988年6月系认定事实错误，二审法院应予以纠正。一、一审庭审时，被上诉人自述涉案房屋的建设时间为1988年6月，但未能提交与此相关的证据予以证明。被上诉人所提交的所有证据都与涉案房屋的建设时间没有关联性，但一审法院对被上诉人提交的全部证据都予以认可，据此以”被告未能举证反驳”为由，确认建房时间为1988年6月。被上诉人没有取得建设规划部门的许可，擅自建设涉案房屋。由于涉案房屋没有在相关部门登记过，导致上诉人无法查明建房时间。在这种情况下，一审法院仅凭被上诉人口述，就认定涉案房屋的建房时间是缺乏事实依据和证据支持的。二、无论涉案房屋建设于何时，被上诉人在未经规划部门批准，未取得建房许可的情况下，擅自兴建房屋的事实是清楚的。在无法明确建房时间的情况下，上诉人适用现行生效并实施的《中华人民共和国城乡规划法》对被上诉人进行处罚是适当的，即便涉案房屋建设完成至今已超过两年，上诉人认为也应该进行处罚。《中华人民共和国行政处罚法》第二十九条第二款规定”违法行为有连续或者继续状态的，从行为终了之日起计算”。上诉人认为，由于该违法建筑物的违法状态处于持续状态，仍然应予行政处罚。综上所述，一审判决认定事实不清，适用法律错误。请求二审法院依法判令：一、撤销三亚市城郊人民法院（2017）琼0271行初42号行政判决；二、驳回被上诉人的诉讼请求。
被上诉人梁振花辩称，一、涉案房屋的建房时间为1988年，可以实地去调查。二、涉案房屋建设时《中华人民共和国城乡规划法》还没有颁布实施，所以没有去报建，涉案房屋也不适用《中华人民共和国城乡规划法》。
二审中，上诉人对原审判决认定被上诉人涉案房屋建造时间为1988年6月的事实有异议，认为被上诉人没有提供证据证明以上事实。经审查，依照《最高人民法院关于行政诉讼证据若干问题的规定》第六条之规定，原告可以提供证明被诉具体行政行为违法的证据。原告提供的证据不成立的，不免除被告对被诉具体行政行为合法性的举证责任。本案中，上诉人除应举证证明被上诉人在未取得建设工程规划许可证和其他有关批准文件的情形下建设房屋的事实外，还应举证证明被上诉人所建房屋具有严重影响城市规划，且无法采取改正措施消除对城市规划影响的情形。被上诉人是否能举证证明其房屋建造时间为1988年6月的事实，不免除上诉人对以上事实应承担的证明责任。故原审判决确认由上诉人承担举证不能证明责任后果的理由并无不当。
二审查明的其他事实，与原审判决认定的事实基本一致，本院依法予以确认。
本院认为，一、被上诉人的妹妹梁振英1984年8月21日，经原三亚市月川乡人民政府同意，通过转让取得涉案地上原房屋。1987年8月12日，梁振英又将该砖瓦房屋转让予其姐姐即本案被上诉人梁振花。根据《国土资源部关于进一步加快宅基地和集体建设用地确权登记发证有关问题的通知》（国土资发[2016]191号）第七条第二款之规定，被上诉人在1999年《土地管理法》修订前，因合法取得房屋而占用的宅基地，可依法予以确权登记。故被上诉人于1987年8月12日取得上述宅基地，符合以上规定，来源合法。二、无论是《中华人民共和国城市规划法》还是《中华人民共和国城乡规划法》，对未取得建设工程规划许可证或违反建设工程规划许可证的规定进行的建设行为，均设定了不同的责任后果。只有对具有严重影响城市规划，且无法采取改正措施消除对城市规划影响的房屋，方可采取限期拆除措施。本案中，对被上诉人在居民居住区合法取得的宅基地上所建自有住房，上诉人并未提供能证明被上诉人所建房屋具有严重影响城市规划，且无法采取改正措施消除对城市规划影响的有效证据，故上诉人对被上诉人所建房屋作出限期拆除的行政处罚，主要证据不足，明显不当。
综上，原审判决认定事实基本清楚，处理结果正确，对原审判决结果本院依法予以维持。上诉人的上诉请求依法不能成立，本院不予支持。依照《中华人民共和国行政诉讼法》第七十条第（一）项、第（六）项，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，由上诉人三亚市吉阳区城市管理局负担。
本判决为终审判决。
审判长陈兴科
审判员张维青
审判员吉红
二〇一七年九月二十日
书记员许梦柳
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caseinfo=JSON.stringify({\"法院ID\":\"2115\",\"案件基本情况段原文\":\"\",\"附加原文\":\"附：相关法律条文\\\n《中华人民共和国婚姻法》第三十二条男女一方要求离婚的，可由有关部门进行调解或直接向人民法院提出离婚诉讼。\\\n人民法院审理离婚案件，应当进行调解；如感情确已破裂，调解无效，应准予离婚。\\\n有下列情形之一，调解无效的，应准予离婚：\\\n（一）重婚或有配偶者与他人同居的；\\\n（二）实施家庭暴力或虐待、遗弃家庭成员的；\\\n（三）有赌博、吸毒等恶习屡教不改的；\\\n（四）因感情不和分居满二年的；\\\n（五）其他导致夫妻感情破裂的情形。\\\n一方被宣告失踪，另一方提出离婚诉讼的，应准予离婚。\\\n《中华人民共和国婚姻法》第三十六条父母与子女间的关系，不因父母离婚而消除。离婚后，子女无论由父或母直接抚养，仍是父母双方的子女。\\\n离婚后，父母对于子女仍有抚养和教育的权利和义务。离婚后，哺乳期内的子女，以随哺乳的母亲抚养为原则。哺乳期后的子女，如双方因抚养问题发生争执不能达成协议时，由人民法院根据子女的权益和双方的具体情况判决。\\\n《中华人民共和国民事诉讼法》第一百四十四条被告经传票传唤，无正当理由拒不到庭的，或者未经法庭许可中途退庭的，可以缺席判决\",\"审判程序\":\"一审\",\"案号\":\"（2013）溆民一初字第701号\",\"法院地市\":\"怀化市\",\"法院省份\":\"湖南\",\"文本首部段落原文\":\"\",\"法院区域\":\"中西部及兵团\",\"文书ID\":\"e374da9c-758b-40a9-8dec-
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