海南省五指山市人民法院
p t ; ” > 行 政 判 决 书
（2017）琼9001行初4号
原告王明坚，男，1974年8月24日出生，黎族，现住五指山市。
委托代理人刘溪，海南知非律师事务所律师。
被告五指山市毛阳镇人民政府。住所地五指山市毛阳镇。
法定代表人李斌，镇长。
原告王明坚不服被告五指山市毛阳镇人民政府于2017年1月6日作出的《行政责令决定书》，于2017年1月17日向本院提起诉讼。本院于同日立案后，于2017年1月20日向被告送达了起诉状副本及应诉通知书。本院依法组成合议庭，于2017年2月22日公开开庭进行了审理。原告王明坚及其委托代理人刘溪到庭参加诉讼。被告五指山市毛阳镇人民政府经本院合法传唤，无正当理由拒不到庭参加诉讼。本案现已审理终结。
被告五指山市毛阳镇人民政府于2017年1月6日作出《行政责令决定书》，认为原告在毛阳镇海榆中线184公里处尚未办理任何规划及施工许可，擅自进行建设的行为违反了《中华人民共和国城乡规划法》第四十条和《海南省村镇规划建设管理条例》第二十条的规定。依据《中华人民共和国城乡规划法》第六十四条的规定责令原告7日内将擅自建设的违章建筑物自行拆除。
原告王明坚诉称，涉诉土地是原告的嫂子王琼珍于2003年承包的退耕还林承包地，先后种植槟榔、马占树等，并饲养鸡鸭等，由于自然条件不好，效益不佳，连年亏损。2012年5月5日，王琼珍与原告大哥王明华因交通事故而双亡，侄女王杨平也在此次事故中造成终身残疾，原告被村委会指定为监护人，负责王杨俏、王杨娜、王杨平的生活等各项责任，尤其对王杨平不仅要有专人照顾，经济负担日益加重。为了尽到抚养义务，原告在不影响市政府规划前提下，向毛阳镇人民政府提交过《临时用地申请书》，随后在该承包地搭建了临时几间铁皮房，用以钢材生意。2017年1月6日，毛阳镇人民政府给原告送达了《行政责令决定书》，限令原告在七日内拆除临时建筑，如果该房被迁拆，不仅投资收回无望，同时会让原告及王杨平几姐妹生活更加艰难。综上，被告作为乡镇一级政府，给原告下达拆除通知，在主体上不适格。根据《中华人民共和国土地管理法》第八十条及《城市房屋拆迁管理条例》第十七条第一款的规定，被告的《行政责令决定书》不具有法律效力，应予撤销。
原告为支持其诉称，现本院提交了如下证据：
1、《行政责令决定书》，证明被告作出了《行政责令决定书》；
2、公证书，证明原告是王杨俏、王杨娜、王杨平的法定监护人；
3、营业执照，证明原告经营的建材店系合法经营；
4、税收完税证明；
5、税务登记证；
证据4、5证明原告在经营过程中遵章守法，向税务机关缴纳了税费。
被告未到庭参加诉讼，亦未提交证据。
原告提交的证据，经合议庭评议，对原告提交的证据作为认定事实的依据予以认定。
经审理查明，2017年1月6日，被告给原告送达了《行政责令决定书》，责令原告7日内将擅自建设的违章建筑物自行拆除。2017年2月8日，被告作出《行政处罚撤销决定书》，将《行政责令决定书》撤销。
本院认为，根据《中华人民共和国行政诉讼法》第三十四条的规定，被告对作出的行政行为负有举证责任，而本案被告在举证期限内并未向本院提交其作出《行政责令决定书》相应证据，且未到庭参加诉讼，无法证明其作出的《行政责令决定书》的合法性，且被告已主动撤销了该《行政责令决定书》。本院已向原告释明该事实，但原告不同意撤回起诉，仍要求对该《行政责令决定书》的合法性进行审查，故应确认该《行政责令决定书》违法。根据《中华人民共和国行政诉讼法》第三十四条、第五十八条、第七十条、《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》第五十条第三款之规定，判决如下：
确认被告五指山市毛阳镇人民政府于2017年1月6日作出的《行政责令决定书》违法。
案件受理费50元，由被告五指山市毛阳镇人民政府负担。
如不服本判决，可在判决书送达之日起十五日内，向本院递交上诉状，并按对方当事人的人数提出副本，上诉于海南省第一中级人民法院。
审判长梁丽梅
审判员李圆
人民陪审员卓启新
二〇一七年三月三日
书记员刘琦
《中华人民共和国行政诉讼法》
第三十四条被告对作出的行政行为负有举证责任，应当提供作出该行政行为的证据和所依据的规范性文件。
被告不提供或者无正当理由逾期提供证据，视为没有相应证据。但是，被诉行政行为涉及第三人合法权益，第三人提供证据的除外。
第五十八条经人民法院传票传唤，原告无正当理由拒不到庭，或者未经法庭许可中途退庭的，可以按照撤诉处理；被告无正当理由拒不到庭，或者未经法庭许可中途退庭的，可以缺席判决。
第七十条行政行为有下列情形之一的，人民法院判决撤销或者部分撤销，并可以判决被告重新作出行政行为：
（一）主要证据不足的；
（二）适用法律、法规错误的；
（三）违反法定程序的；
（四）超越职权的；
（五）滥用职权的；
（六）明显不当的。
《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》
第五十条被告在一审期间改变被诉具体行政行为的，应当书面告知人民法院。
原告或者第三人对改变后的行为不服提起诉讼的，人民法院应当就改变后的具体行政行为进行审理。
被告改变原具体行政行为，原告不撤诉，人民法院经审查认为原具体行政行为违法的，应当作出确认其违法的判决；认为原具体行政行为合法的，应当判决驳回原告的诉讼请求。
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