海南省三亚市中级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼02行终50号
上诉人（原审被告）三亚市吉阳区城市管理局，住所地三亚市榆亚路19号。
法定代表人李灵，该局局长。
委托代理人吴光维，海南三和元律师事务所律师。
委托代理人朱丽红，该局工作人员。
被上诉人（原审原告）林斌，男，1961年9月16日出生，汉族，现住三亚市。
被上诉人（原审原告）曾追妹，女，1927年1月10日出生，汉族，现住三亚市，系林斌母亲。
二被上诉人共同委托代理人林圣全，海南追根律师事务所律师。
二被上诉人共同委托代理人李禄群，海南追根律师事务所实习律师。
上诉人三亚市吉阳区城市管理局（以下简称吉阳区城管局）因被上诉人诉其规划行政管理处罚纠纷一案，不服三亚市城郊人民法院2017年4月29日作出的（2017）琼0271行初32号行政判决，通过原审法院向本院提起上诉。本院于2017年6月12日受理后，依法组成合议庭，于2017年8月15日公开开庭进行了审理。上诉人吉阳区城管局委托代理人吴光维、朱丽红，被上诉人林斌及其委托代理人林圣全、李禄群到庭参加了诉讼。本案现已审理终结。
本案被诉行政行为：上诉人吉阳区城管局2017年1月12日对二被上诉人作出三吉城管（二大队）罚决字[2016]第750号行政处罚决定书，决定责令二被诉人在决定书送达之日起三日内，拆除其位于三亚市吉阳区东岸村委会东岸三组的自建住房。
原审法院查明：原告林斌的父亲林守土于1930年出生在马来西亚，1953年回国。归国后，经林守土及原告林斌的申请，三亚市荔枝沟区公所于1986年8月12日分别划给林守土及林斌两块相邻土地作为宅基地使用，该两块土地位于现在的三亚市吉阳区东岸村委会东岸三组，面积分别为440平方米和430平方米。2007年11月，原告林斌和父亲林守土拆掉旧房，在该两块土地上兴建一栋六层新房，建筑面积4572平方米，占地面积762平方米。2009年，林斌的父亲林守土去世。
被告吉阳区城管局曾于2016年3月7日作出三吉城管(二大队)罚决字[2015]第283号《三亚市吉阳区城市管理局行政处罚决定书》，责令两原告自决定书送达之日起三日内拆除违法建筑物。两原告不服该处罚决定书，于2016年4月1日向本院提起行政诉讼，请求撤销该处罚决定书。本院经过审理后，认为被告作出的处罚决定明显适用法律错误，判决撤销三吉城管(二大队)罚决字[2015]第283号《三亚市吉阳区城市管理局行政处罚决定书》。该判决生效后，被告于2017年1月12日再次向两原告制作并送达第750号行政处罚决定书，决定：责令原告自决定书送达之日起三日内拆除违法建筑物。该处罚决定适用的法律是《中华人民共和国城市规划法》和《海南省经济特区城市规划条例》。
另，本案的涉案房屋已于2017年3月23日由被告全部拆除。
原审法院认为，被告对原告的建筑进行查处时，应适用合法有效的法律法规。被告作出的三吉城管(二大队)罚决字[2016]第750号《三亚市吉阳区城市管理局行政处罚决定书》中适用的法律法规是《中华人民共和国城市规划法》和《海南省经济特区城市规划条例》。《中华人民共和国城乡规划法》于2008年1月1日开始施行，同时《中华人民共和国城市规划法》于2008年1月1日被废止。《海南经济特区城乡规划条例》于2009年10月1日开始施行，同时《海南经济特区城市规划条例》于2009年10月1日被废止。法律法规在被废止失效后，即不具有法律效力，不能被援引和适用。因此，被告在作出三吉城管(二大队)罚决字[2016]第750号《三亚市吉阳区城市管理局行政处罚决定书》时，适用已经失效的《中华人民共和国城市规划法》和《海南经济特区城市规划条例》，属于明显的适用法律错误。
本案涉案房屋占用土地的权属来源于农村集体所有，并非城市规划区域内的国有土地，被告适用《中华人民共和国城市规划法》第三十二条：”在城市规划区内新建、扩建和改建建筑物、构筑物、道路、管线和其他工程设施，必须持有关批准文件向城市规划行政主管部门提出申请，由城市规划行政主管部门根据城市规划提出的规划设计要求，核发建设工程规划许可证件。”的规定，亦属于适用法律错误，依法应予纠正。
综上，依照《中华人民共和国城乡规划法》第七十条、《中华人民共和国行政诉讼法》第七十条第（二）项和第七十四条第二款的规定，据此作出如下判决：确认被告三亚市吉阳区城市管理局于2017年1月12日作出的三吉城管（二大队）罚决字[2016]第750号行政处罚决定书违法。
上诉人吉阳区城管局诉称，原审法院混淆法律概念，错误理解法律条文，适用法律错误。一、涉案违法建筑鉴于2007年11月，当时适用的法律是《城市规划法》而非《城乡规划法》。上诉人查处涉案违法建筑时，《城市规划法》虽已废止，但并不意味着废止以后就不能再适用。二、《立法法》第八十四条规定：法律、行政法规、地方性法规、自治条例和单行条例、规章不溯及既往。因此不能用新的法律约束过去的行为。三、最高人民法院关于印发《关于审理行政案件适用法律规范问题的座谈会纪要》的通知（法[2004]96号）对新旧法律的适用问题有明确解释：行政相对人的行为发生在新法施行以前，具体行政行为作出在新法施行以后，人民法院审查具体行政行为的合法性时，实体问题适用旧法规定，程序问题适用新法规定。四、建设部在1990年11月8日就《城市规划法》的溯及力问题以（90）建法字第577号文向全国人大请示提出”按照法不溯及既往的原则，在该法实施后处理该法实施以前发生的违法案件，还是应当适用《城市规划条例》”，全国人大常委会办公厅于1990年12月11日以常办[1990]秘字第093号函复：”关于《城市规划法》的法律溯及力问题，同意你部的意见，请按此办理。”五、本案中被上诉人的违法行为发生在《城市规划法》尚未失效时期，因此依照法不溯及既往的原则，在处理《城乡规划法》生效之前的违法建设案件，应适用城市规划法。虽然被上诉人违法行为发生至今超过2年，但该违法状态一直存续，因此上诉人对该违法建设进行处罚是正确的。六、根据《三亚市城市总体规划（1995-2010）》，东岸村委会辖区属于城市规划区。七、原审法院错误理解”城市市区”和”城市规划区”的法律概念。”城市规划区”不仅包括国有土地，也包括集体土地。《城市规划法》第三条第二款规定”本法所称城市规划区，是指城市市区、近郊区以及城市行政区域内因城市建设和发展需要实行规划控制的区域，城市规划区的具体范围，由城市人民政府在编制的城市总体规划中划定”。因此原审法院认为《城市规划法》第三十二条只能规范国有土地上的建设行为，不能规范集体土地上的建设行为是错误的。综上，一审判决混淆法律概念，错误理解法律条文，适用法律错误，请求：撤销一审判决，驳回被上诉人的诉讼请求。
被上诉人林斌、曾追妹辩称：一、上诉人在作出750号处罚决定书时所根据的《中华人民共和国城市规划法》已被人大常委会废止。通过立法行为废止的法律，不管是实体法，还是程序法，都不能再适用。二、上诉人将”1990年12月11日全国人大常委会办公厅以常办[1990]秘字第093函复建设部同意适用旧法《城市规划条例》”的意见直接引用到本案是错误的。如果上诉人认为两部法律之间的适用有冲突，应当按照规定报请人大常委会裁决而非理所当然地适用旧法。三、答辩人2007年翻建房屋时，三亚还未实行农村居民房屋报建的相关规定。四、上诉人作出的750号行政处罚违反法定程序。根据《中华人民共和国行政处罚法》第二十九条第一款规定：”违法行为在2年内未被发现的，不再给予行政处罚，法律另有规定的除外。”被上诉人的房屋于2007年11月完成，处罚只能在2009年11月之前作出，根据上述规定，上诉人已不能再对被上诉人进行处罚。综上，原审判决认定事实清楚，适用法律正确，请求：驳回上诉人的诉讼请求，维持原判。
二审经审理查明的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、被上诉人房屋建造于2007年11月，而《中华人民共和国城乡规划法》从2008年1月1日起实施。依据”实体从旧、程序从新”的一般法律适用原则，上诉人适用被上诉人在建造房屋时仍具有法律效力的《中华人民共和国城市规划法》及《海南经济特区城市规划条例》作为依据，对其进行处理，在适用法律上并无不当。原审判决认定上诉人所作行政处罚适用法律错误，理由不当，本院依法予以纠正。
二、依据国务院1982年2月13日发布的《村镇建房用地管理条例》第十四条之规定，非农业户口居民（含华侨），建房需要宅基地的，经公社管理委员会批准，可合法取得宅基地。被上诉人于1986年经原三亚市荔枝沟区公所批准取得上述宅基地，符合以上规定，来源合法。
三、被上诉人宅基地用地性质虽属集体土地，但根据《三亚市城市总体规划（1995-2010）》，被上诉人所建房屋区域属三亚市城市规划区范围，其建设活动应受《中华人民共和国城市规划法》及《海南经济特区城市规划条例》规范调整，依《中华人民共和国城市规划法》第三十二条之规定，被上诉人在未取得建设工程规划许可证件和其他有关批准文件的情形下，建设房屋，其行为违法。
四、依据《中华人民共和国城市规划法》第四十条之规定，对未取得建设工程规划许可证件或违反建设工程规划许可证件的规定进行的建设行为，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，由被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Ｏ一七年八月三十日
书记员熊冰清
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