海南省海口市中级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼01行终68号
上诉人（原审原告）：海南贵族游艇会有限公司，住所地海南省海口市滨海西路99号。
法定代表人：马胜民，该司董事长。
委托代理人：张北光，该司财务经理。
被上诉人（原审被告）：海南省地方税务局，住所地海南省海口市龙华区城西路18号地税大厦。
法定代表人：陈如军，该局局长。
委托代理人：梁靖磊，该局主任科员。
原审被告：海南省海口市秀英区地方税务局，住所地海南省海口市秀英区美俗路18号。
法定代表人：徐宁，该局局长。
委托代理人：吴少藩，该局副局长。
委托代理人：李际康，海南外经律师事务所律师。
上诉人海南贵族游艇会有限公司（以下简称贵族游艇会）因与被上诉人海南省地方税务局（以下简称省地税局）、原审被告海南省海口市秀英区地方税务局（以下简称秀英地税局）税收行政管理一案，不服海口市秀英区人民法院（2016）琼0105行初135号行政裁定，向本院提起上诉。本院受理后，依法组成合议庭审理了本案。
2016年9月22日，被上诉人省地税局就案外人海南省海口市地方税务局《关于滨海大道西延长线北侧中段城镇土地使用税纳税问题的请示》，向该局作出琼地税函[2016]886号《关于滨海大道西延长线北侧中段城镇土地使用税涉税问题的函》（以下简称886号函）。2016年10月26日，原审被告秀英地税局向上诉人贵族游艇会作出海口地税秀英区局限改[2016]1944号《责令限期改正通知书》（以下简称1944号通知书）。2016年11月9日，贵族游艇会向海口市秀英区人民法院提起行政诉讼，请求撤销886号函和1944号通知书。
原审裁定认为：秀英地税局作出的1944号通知书以及省地税局作出的886号函，是两个行政机关分别作出的两个不同的行政行为，而审查省地税局作出的行政行为是否合法，其权限不在基层人民法院，应由中级人民法院管辖。此外，省地税局作出的886号函，是针对海口市地方税务局的请示所作的答复，属内部行政行为，其行为尚未外化，对贵族游艇会的权利义务没有产生实际影响，不具有可诉性。经原审法院向贵族游艇会释明，贵族游艇会在原审法院规定的时间内未就此作出答复，因此，贵族游艇会对省地税局的起诉，依法应予以驳回。根据《中华人民共和国行政诉讼法》第四十九条第四项，《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、第六十三条第（二）项之规定，裁定：驳回贵族游艇会对省地税局的起诉。
上诉人贵族游艇会上诉称：秀英地税局作出的1944号通知书，是依据省地税局作出的886号函作出的行政行为。两者系针对同一事实而作出的行政行为，与本案具有因果关系。而且，行政行为没有内外部之分，且其针对的相对人明确。因此，原审裁定认定事实和适用法律错误，请求二审法院：1、撤销海口市秀英区人民法院（2016）琼0105行初135号行政裁定书；2、本案受理费由被上诉人承担。
本院认为：一、关于上诉人贵族游艇会将被上诉人省地税局和原审被告秀英地税局列为共同被告的问题。根据《中华人民共和国行政诉讼法》第二十六条第一款、第二款和第四款的规定，”公民、法人或者其他组织直接向人民法院提起诉讼的，作出行政行为的行政机关是被告”、”经复议的案件，复议机关决定维持原行政行为的，作出原行政行为的行政机关和复议机关是共同被告”、”两个以上行政机关作出同一行政行为的，共同作出行政行为的行政机关是共同被告”。本案中，省地税局和秀英地税局分别作出886号函和1944号通知书的行政行为，属于两个行政机关分别作出不同行政行为的情形，不属于前述”复议机关决定维持原行政行为”或者”两个以上行政机关作出同一行政行为”的情形。根据前述法条第一款”作出行政行为的行政机关是被告”的规定，省地税局和秀英地税局应就其行政行为，各自作为被告分别应诉。贵族游艇会将省地税局和秀英地税局列为共同被告，违反前述法条的规定。
二、关于被上诉人省地税局作为被告的级别管辖问题。根据海南省高级人民法院的规定，省级职能部门作为被告的案件中，除作为复议机关决定维持原行政行为的案件以外，由中级人民法院管辖第一审行政案件。据此，就省地税局作出涉案886号函的行政行为而言，应由本院作为第一审行政案件的管辖法院。贵族游艇会就886号函向原审法院起诉，违反级别管辖规定。
三、关于886号函是否可诉的问题。根据《最高人民法院关于适用<中华人民共和国行政诉讼法>若干问题的解释》第三条第一款第（八）项的规定，就行政行为对其合法权益明显不产生实际影响的情形，已经立案的，应当裁定驳回起诉。也就是说，对当事人合法权益不产生实际影响的行政行为，不具有可诉性。本案中，886号函，系省地税局就案外人海南省海口市地方税务局的请示，作出回复的函件。秀英地税局并未凭据该函要求贵族游艇会履行纳税申报，而是作出1944号通知书限期贵族游艇会进行纳税申报。因此，该函属于行政机关内部往来函件，对当事人的合法权益明显不产生实际影响，不具有可诉性。
综上所述，上诉人贵族游艇会的上诉理由，缺乏事实根据和法律依据，应予驳回。原审裁定认定事实清楚，适用法律、法规正确，应予维持。依照《中华人民共和国行政诉讼法》第八十九条第一款第（一）项的规定，裁定如下：
驳回上诉，维持原裁定。
本案不收取案件受理费。
本裁定为终审裁定。
审判长钟山
审判员张珂瑜
审判员温方
二○一七年七月六日
法官助理ＸＸ
书记员麦海燕
附相关法律法规条文：
中华人民共和国行政诉讼法
第二十六条公民、法人或者其他组织直接向人民法院提起诉讼的，作出行政行为的行政机关是被告。
经复议的案件，复议机关决定维持原行政行为的，作出原行政行为的行政机关和复议机关是共同被告；复议机关改变原行政行为的，复议机关是被告。
复议机关在法定期限内未作出复议决定，公民、法人或者其他组织起诉原行政行为的，作出原行政行为的行政机关是被告；起诉复议机关不作为的，复议机关是被告。
两个以上行政机关作出同一行政行为的，共同作出行政行为的行政机关是共同被告。
行政机关委托的组织所作的行政行为，委托的行政机关是被告。
行政机关被撤销或者职权变更的，继续行使其职权的行政机关是被告。
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。
最高人民法院
关于适用《中华人民共和国行政诉讼法》若干问题的解释
第三条有下列情形之一，已经立案的，应当裁定驳回起诉：
（一）不符合行政诉讼法第四十九条规定的；
（二）超过法定起诉期限且无正当理由的；
（三）错列被告且拒绝变更的；
（四）未按照法律规定由法定代理人、指定代理人、代表人为诉讼行为的；
（五）未按照法律、法规规定先向行政机关申请复议的；
（六）重复起诉的；
（七）撤回起诉后无正当理由再行起诉的；
（八）行政行为对其合法权益明显不产生实际影响的；
（九）诉讼标的已为生效裁判所羁束的；
（十）不符合其他法定起诉条件的。
人民法院经过阅卷、调查和询问当事人，认为不需要开庭审理的，可以迳行裁定驳回起诉。
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},{ name: \"审理程序\", key: \"trialRound\", value: \"一审\" },{ name: \"裁判日期\",
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