海南省高级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼行终83号
海南省高级人民法院
行政裁定书
（2017）琼行终83号
上诉人（原审原告）李晓飞，男，1967年7月28日出生，汉族，住所地河南省西平县，现住海口市。
被上诉人（原审被告）海口市秀英区人民政府，住所地海口市秀英区秀华路东段。
法定代表人王业天，该区区长。
委托代理人赵永恺，该区政府科员。
委托代理人黄昭毅，海南维特律师事务所律师。
被上诉人（原审被告）海口市秀英区城市管理行政执法局，住所地海口市秀英区向荣路福秀小区。
法定代表人戴洪泽，该局局长。
委托代理人李瑞壮，该局工作人员。
委托代理人周家靖，海南维特律师事务所律师。
被上诉人（原审被告）海口市国土资源局秀英分局，住所地海口市秀英区丘海大道25号。
法定代表人伍鼎位，该局局长。
委托代理人张传梦，该局科员。
委托代理人吴孔军，海南瑞来律师事务所律师。
被上诉人（原审被告）海口市秀英区长流镇人民政府，住所地海口市秀英区长流镇长生路134号。
法定代表人王飞，该镇镇长。
委托代理人林升栋，该镇政府工作人员。
委托代理人庞诚，该镇政府法律顾问。
上诉人李晓飞因其诉被上诉人海口市秀英区人民政府（以下简称秀英区政府）、被上诉人海口市秀英区城市管理行政执法局（以下简称秀英城管局）、被上诉人海口市国土资源局秀英分局（以下简称秀英国��分局）、被上诉人海口市秀英区长流镇人民政府（以下简称长流镇政府）行政强制一案，不服海南省海口市中级人民法院于2016年11月8日作出的（2016）琼01行初267号行政裁定，向本院提起上诉。本院依法组成合议庭，对本案进行了审理，现已审理终结。
李晓飞诉称：秀英城管局、秀英区政府、秀英国土分局、长流镇政府于2016年6月14日、6月19日、7月26日对其经营的两个农用设施铁皮大棚进行了破坏性的非法强拆，直接造成其财产损失200多万元。遂提起本案诉讼，请求判令四被上诉人强拆两铁皮大棚行为违法。
原审认为：《中华人民共和国行政诉讼法》第二十六条第一款规定：”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”。秀英城管局在答辩中确认其系对涉案建筑当事人进行行政处罚并实施强制拆除的主体，故秀英城管局为本案适格被告，而秀英区政府、秀英国土分局、长流镇政府不是作出涉案行政行为的行政机关，故其被告主体资格不适格。李晓飞将秀英区政府、秀英国土分局、长流镇政府错列为本案共同被告，经依法释明后仍然不同意变更，根据《最高人民法院关于执行〈中华人民共和国行政诉���法〉若干问题的解释》第二十三条第一款及《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（三）项的规定，应当裁定驳回李晓飞对秀英区政府、秀英国土分局、长流镇政府的起诉，并就李晓飞对秀英城管局的起诉作另行处理。综上所述，依照《中华人民共和国行政诉讼法》第二十六条第一款、《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》第二十三条第一款、《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（三）项、第二款的规定，裁定驳回李晓飞对秀英区政府、秀英国土分局、长流镇政府的起诉。
李晓飞上诉称，李晓飞是在原审法院立案庭引导下以秀英区政府、秀英城管局、秀英国土分局、长流镇政府为被告提起的本案诉讼，且强拆现场的录像和照片亦证明，四被上诉人直接组织领导和参与了涉案建筑物的非法强拆，现在不能仅凭秀英城管局的答辩状和其补办的一份向已被注销的海口亚农新生物技术开发有限公司（以下简称亚农公司）作出的《行政处罚决定书》而免除其他三被上诉人的责任。另外，秀英区政府在张贴在被拆建筑物上的《通告》中明确”下列违法建筑经行政执法部门责令限期拆除，......逾期不拆除的，将依法组织强制拆除”，强拆现场的工作人员亦称是依据上述《通告》实施强拆的，而秀英城管局作为秀英区政府的一个职能部门，没有权力和能力组织秀英国土分局、长流镇政府等工作人员组成的一百多人的强拆队伍，其只是受委托执行指令而已，故秀英区政府对被诉强拆行为有不可推卸的责任。综上，请求：一、撤销（2016）琼01行初267号行政裁定；二、本案指令原审法院继续审理。
秀英国土分局辩称，首先，有关国土资源管理的法律法规均未赋予国土管理部门关于强制拆除的行政强制职权；其次，根据海口市人民政府办公厅于2016年3月5日作出的《关于做好国土资源执法监督权项承接工作的通知》（海府办[2016]31号），海口市的国土资源执法权已下放给区政府，答辩人���再行使相关权力；再次，作出行政处罚决定、发布拆除违法建筑通告以及组织实施拆除的主体并非答辩人。因此，答辩人不是本案适格被告，在李晓飞错列答辩人为本案被告且经原审法院释明后拒不同意变更诉讼主体的情况下，原审法院依法驳回其对答辩人的起诉是正确的。综上，原审裁定适用法律和驳回李晓飞对答辩人的起诉是正确的，请求二审法院依法驳回李晓飞的上诉请求。
秀英区政府和长流镇政府未提交书面答辩意见，在二审审理过程中均称同原审的答辩意见一致。其在原审均辩称，对涉案建筑物的当事人进行行政处罚并实���强制拆除的主体为秀英城管局，秀英区政府和长流镇政府不是本案的适格被告，并请求驳回李晓飞的诉讼请求。
秀英城管局亦未提交书面答辩意见，在二审审理过程中称同原审答辩意见一致。其在原审辩称，秀英城管局认定涉案建筑属于违法建筑，并作出限期自行拆除的行政处罚，因亚农公司拒不执行处罚决定，遂强制拆除了涉案建筑，行政处罚和实施强制拆除的主体是秀英城管局，故按照级别管辖规定，本案应由基层人民法院管辖。另外，秀英城管局就涉案建筑物作出的询问调查通知书、现场检查笔录、行政处罚告知书、行政处罚���定书等多份法律文书的调查、处罚对象均为亚农公司，李晓飞无权提起本案诉讼。综上，李晓飞请求确认被诉行政行为违法没有事实与法律依据，请求驳回其诉讼请求。
本院经审理查明：2015年6月16日，秀英城管局向亚农公司作出海管法罚告字X2[2015]第0331号《海口市城市管理行政执法行政处罚事先告知书》，拟对海口市椰海大道北侧亚蔬对面的两间一层简易结构房屋给予”责令限期自行拆除违法建筑的行政处罚”，同时告知该公司”在收到本告知书之日起3日内有权向海口市秀英区城市管理行政执法��提出陈述、申辩的要求，逾期视为放弃上述权利”。次日9时，秀英城管局将上述告知书予以留置送达。随后，李晓飞向该局提交了《申辩书》，称亚农公司已于2014年3月被注销，地上是其搭建的临时性农业设施即两个钢架结构大棚，而非简易结构房屋，用途为食用菌生产、培育及销售，不属于《中华人民共和国城乡规划法》第六十六条第一款第一项规定的违法建筑，并要求撤销行政处罚事先告知书，及对其合法使用土地的行为不予处罚。2015年6月20日，秀英城管局以亚农公司为被处罚人作出海管法罚字X2[2015]第0331号《行政处罚决定书》，以该公司擅自建造两间一层简易结构房屋违法为由，决定责令其接到本行政处罚决定书之日起7日内自行拆除该违法建筑，逾期未自行拆除的，将依法强制拆除。但秀英区政府和秀英城管局在本案诉讼中未提交上述《行政处罚决定书》送达的证据。
2016年4月21日，秀英区政府在《海口日报》发布《关于责令限期拆除违法建筑的通告》，责令”违法建设当事人自本通告送达之日起3日内，自行拆除所建的违法建筑。逾期未自行拆除的，将依法组织强制拆除”。同年5月31日，秀英区政府再次在《海口日报》发布《通告》，称”下列违法建筑经行政执法部门限期拆除，但当事人拒不执行。......限下列违法建筑当事人自本通告发布之日起，三日内自行拆除所建违法建筑。逾期不拆除的，将依法组织强制拆除。”随后，涉案建筑物分三次被拆除。经各方当事人确认，本案被拆建筑物为上述通告所附《海口市秀英区2015年度土地卫片执法通告拆除违法建筑列表》中的第32号（图斑号346-1）建筑物。
另查明，李晓飞提供的强制拆除涉案建筑物的现场视频和照片显示，组织实施现场拆除工作的主要是秀英城管局的工作人员。
本院认为，李晓飞的本案诉讼请求是确认强制拆除涉案建筑物的行政行为违法，根据《中华人民共和国行政诉讼》第二十六条第一款”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”的规定，本案适格的被告应当是作出强制拆除行政行为的行政机关。本案证据显示，就涉案被拆建筑物先后作出《行政处罚事先告知书》《行政处罚决定书》，并具体实施拆除工作的是秀英城管局，该局在答辩意见中亦对此予以确认。依照上述法律规定，秀英城管局作为被诉强制拆除行为的主体，其应对该行政行为承担法律责任，故原审认定该局是本案适格被告，并无不当。
本案的争议焦点是秀英区政府、秀英国土分局和长流镇政府是否为本案适格被告。李晓飞主张四被上诉人均是适格被告，其主要证据和理由是被诉强制拆除行为的依据是秀英区政府的《通告》，且亦是四被上诉人直接组织领导和参与实施的。本院认为，根据《海口市城市管理相对集中行政处罚权暂行办法》第三条第一款、第四条和第五条之规定，海口市城市规划管理等方面的行政处罚权由城管执法部门相对集中行使后，城市规划管理等行政主管部门不再行使法律、法规、规章规定的行政处罚权。秀英国土分局和长流镇政府依上述规定并不享有对违法建筑的行政处罚权，事实上也不是作出涉案行政行为的行政机关，其应区政府要求参与强制拆除工作属配合行为，并不构成对强拆行为的法律��任，故秀英国土分局、长流镇政府不是本案适格被告。关于秀英区政府是否为本案适格被告的问题。虽然秀英区政府在《通告》中明确”逾期不拆除的，将依法组织强制拆除”，且实际上也组织公安、国土等相关职能部门参与了拆除工作，但秀英区政府的组织行为主要是组织协调其所属的职能部门在保卫警戒等方面做好配合工作，目的是保障强制拆除工作的顺利进行，其本身并不属直接实施强制拆除行为，故秀英区政府亦非本案适格被告。
综上，秀英区政府、秀英国土分局和长流镇政府均不是本案适格被告，原审法院在李晓飞经释明仍拒不同意变更被告的情况下，裁定驳回其对秀英区政府、秀英国土分局和长流镇政府的起诉，并就其对秀英城管局的起诉另行处理，适用法律正确，案件处理结果亦无不当。李晓飞的上诉请求和理由不能成立，本院不予支持。依照《中华人民共和国行政诉讼法》第八十九条第一款第（一）项之规定，裁定如下：
驳回上诉，维持原裁定。
本裁定为终审裁定。
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审判长黄胜敏
审判员郑怀全
审判员陈焱
书记员王婉
附：本裁定适用的相关法律依据
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