海南省三亚市中级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼02行终77号
上诉人（原审原告）：吴运妹，女，1945年7月2日出生，公民身份号码：×××，汉族，住三亚市。
委托诉讼代理人：肖卫红，北京在明律师事务所律师
被上诉人（原审被告）：三亚市公安局吉阳分局。住所地三亚市新风路***号。
法定代表人：梁一强，该局局长。
委托诉讼代理人：谢灿华，该局工作人员。
委托诉讼代理人：李海平，该局工作人员。
上诉人吴运妹因与被上诉人三亚市公安局吉阳分局不履行保护人身、财产权的法定职责一案，不服三亚市城郊人民法院（2017）琼0271行初114号行政裁定，向本院提起上诉。本院于2017年9月20日立案后，依法组成合议庭审理了本案。本案现已审理终结。
本案被诉行为：因2017年初，吉阳区人民政府组织大批人力对东岸村村民房屋实施非法强制拆除。吴运妹为该村村民，为保护其人身财产安全，吴运妹于2017年3月8日向三亚市公安局吉阳分局提出《请求保护人身财产安全申请书》，请求三亚市公安局吉阳分局及其派出机关对吴运妹的生命财产安全依法进行保护，并采取切实有效措施防止违法侵害行为再次发生。但三亚市公安局吉阳分局收到申请后却没有采取任何有效措施。2017年3月31日上午10点左右，吴运妹房屋被人民政府有关部门强制拆除，拆除过程中，房屋内大量物品被损坏、掩埋，造成巨大经济损失。强拆期间，吴运妹多次拨打110报警电话，但警察称政府行为拒绝出警。吴运妹认为，打击犯罪、保护人民是公安机关的应有责任，但三亚市公安局吉阳分局却没有履行其法定职责。三亚市公安局吉阳分局不依法履行职责之行为已构成行政不作为。为依法维护吴运妹的合法权益，根据《行政诉讼法》之规定，吴运妹遂提起诉讼，请求：1、确认三亚市公安局吉阳分局行政不作为行为违法。2、本案诉讼费用由三亚市公安局吉阳分局承担。
原审法院认为，本案性质为吴运妹认为三亚市公安局吉阳分局不履行保护人身、财产权的法定职责。根据《中华人民共和国行政诉讼法》第三十八条第一款在起诉三亚市公安局吉阳分局不履行保护人身、财产权法定职责的案件中，吴运妹应当提供其向三亚市公安局吉阳分局提出申请的证据的规定，吴运妹应提供其已向三亚市公安局吉阳分局提出申请保护人身、财产权的证据。吴运妹提交了请求保护人身财产安全申请书，未提供该请求保护人身财产安全申请书已向三亚市公安局吉阳分局提交且三亚市公安局吉阳分局已签收的证据，三亚市公安局吉阳分局也否认己收到该请求保护人身财产安全申请书。吴运妹提交的现有有效证据，不足以证明其已向三亚市公安局吉阳分局提出保护人身、财产权申请的事实存在，即吴运妹未能提供其向三亚市公安局吉阳分局提出申请保护人身、财产权的证据。吴运妹在没有证据证明其已向三亚市公安局吉阳分局提出保护人身、财产权的申请的情形下，提起三亚市公安局吉阳分局不履行法定职责的行政诉讼，显然没有事实根据，不符合提起履行法定职责行政诉讼的法定起诉条件。三亚市110报警服务台是三亚市公安局的内设机构，吴运妹认为三亚市110报警服务台接到吴运妹报警后拒绝指令出警，构成行政不作为违法而提起行政诉讼，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》第二十条第二款行政机关的内设机构以自己的名义作出具体行政行为，当事人不服提起诉讼的，应当以该行政机关为被告的规定，应当以三亚市公安局为被告。吴运妹以三亚市公安局吉阳分局为本案被告，所列被告错误。经庭审提示，吴运妹不同意变更被告。综上所述，吴运妹的起诉不符合法定起诉条件，起诉被告不适格，所列被告错误。对吴运妹的起诉，应依法予以驳回。依照《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（一）、（三）、（十）项的规定，作出如下裁定：驳回吴运妹的起诉。
吴运妹上诉称，一、三亚市公安局吉阳分局具有制止和惩治违法犯罪、保护公民的人身财产安全的法定义务，其不予出警的行为构成行政不作为，吴运妹提起诉讼符合法定起诉条件。1、三亚市公安局吉阳分局具有制止和惩治违法犯罪、保护公民的人身财产安全的法定义务，系本案的适格被告。根据《中华人民共和国警察法》第二条：”人民警察的任务是维护国家安全，维护社会治安秩序，保护公民的人身安全、人身自由和合法财产，保护公共财产，预防、制止和惩治违法犯罪活动”；第二十一条：”人民警察遇到公民人身、财产安全受到侵害或者处于其他危难情形，应当立即救助；对公民的报警案件，应当及时查处”，《国务院办公厅关于进一步严格征地拆迁管理工作切实维护群众合法权益的紧急通知》中也规定”因暴力拆迁和征地造成人员伤亡或严重财产损失的，公安机关要加大办案力度，尽快查清事实，依法严厉惩处犯罪分子”。本案三亚市公安局吉阳分局作为县级公安机关对所在辖区公民的人身财产安全具有保护的义务，对所在辖区的报警事项负有依法处理的职责，无论公民是否提交书面保护申请，只要公民的人身财产安全受非法侵犯，公安机关都必须派员出警予以保护。吴运妹的合法房屋被有关部门强制拆除，吴运妹人身安全、财产安全受到严重迫害，如此公然违法的犯罪行为当然属于公安机关管辖范围，人民警察必须立即制止该违法行为，并保护受害者的人身财产安全。但吴运妹多次报警后，警察都没有出警，这种放任犯罪的行为，不仅违反了公安机关人民警察职业道德规范，更是一种违法行为，严重者应当追究其徇私舞弊的法律责任。2、三亚市公安局吉阳分局未提交任何证据证明其履行了出警义务，也没有提交任何证据证明其未收到接警通知。根据《行政诉讼法》第三十四条、《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》第二十六条以及《最高人民法院关于行政诉讼证据若干问题的规定》第一条规定了行政诉讼被告的举证责任，”在行政诉讼中，被告对其作出的具体行政行为承担举证责任。被告应当在收到起诉状副本之日起15日内提交答辩状，并提供作出行政行为时的证据、依据;被告不提供或者无正当理由逾期提供的，应当认定该具体行政行为没有证据、依据”。本案中，三亚市公安局吉阳分局未提交任何证据证明其履行了出警义务，也没有提交任何证据证明其未收到接警通知，其必将承担败诉后果，对其行政不作为行为承担责任。3、一审法院以110报警服务台属于三亚市公安局的内设机构为由认定吴运妹错列被告，属于认识错误。公安部《110接处警工作规则》第二条明确规定：”城市和县（旗）公安局指挥中心应当设立110报警服务台，负责全天24小时受理公众紧急电话报警、求助和对公安机关及其人民警察现时发生的违法违纪或者失职行为的投诉”，第十条：”110报警服务台应当及时下达处警指令，公安机关各业务部门、基层单位和人员必须服从110报警服务台发出的处警指令，不得推诿、拖延出警，影响警情的处置”，第十一条：”对危及公共安全、人身或者财产安全迫切需要处置的紧急报警、求助和对正在发生的民警严重违法违纪行为的投诉，处警民警接到110报警服务台处警指令后，应当迅速前往现场开展处置工作。对其他非紧急报警、求助和投诉，处警民警应当视情尽快处理”。根据以上规定，110报警服务台是集报警、指挥、处警于一体的报警台，当公民遇到危险或紧急情况时只需要拨打110,无需拨打三亚市公安局吉阳分局的办公电话。至于110报警服务台接警后的处警程序则是公安系统的内部转接程序，吴运妹没有举证义务。且吴运妹系针对三亚市公安局吉阳分局不依法出警保护吴运妹人身财产安全之行为提起行政诉讼，与接到报警电话的报警服务台属于何机关的内设机构并无关联，不论110报警服务台属于哪级公安机关的内设机构，都不能否认三亚市公安局吉阳分局对吉阳区范围内治安管理、惩治犯罪、保护人民的法定职责。一审法院以三亚市110报警服务台属于三亚市公安局的内设机构为由认定吴运妹错列被告，认定事实错误。4、吴运妹已提交充分证据证明吴运妹多次报警，三亚市公安局吉阳分局也认可了该组证据，一审法院应予采纳。吴运妹在起诉时已提交报警记录及通话录音作为证据，在一审法庭质证环节，三亚市公安局吉阳分局也认可了该组证据的真实性、合法性，一审法院应予采纳。另，三亚市公安局吉阳分局在一审庭审时并未否认其行政诉讼被告地位，在一审庭审期间三亚市公安局吉阳分局强调强拆期间其多次到场处理，但因系政府行为，不属于其处理范围。故一审法院在庭审时也并未提示吴运妹变更被告，一审裁定所称”经庭审提示，原告不同意变更被告”系无中生有，有违司法公正。二、一审法院裁定驳回吴运妹起诉，是对行政行为司法审查权的放弃，客观上造成了行政机关的行政行为处于无监督的真空状态，且违反了《最高法院关于依法保护行政诉讼当事人诉权的意见》的规定，不利于社会稳定。《最高法院关于依法保护行政诉讼当事人诉权的意见》，针对地方法院肆意限制公民行政案件诉权的现象作出专门规定，重申了”行政诉讼制度是保障最广大人民群众利益最有效、最直接的法律制度之一，是新形势下解决人民内部矛盾的一种有效方式，是维护社会和谐稳定的重要手段”；强调”只有畅通行政诉讼渠道，才能引导人民群众以理性合法的方式表达利益诉求，最大限度地减少社会不和谐因素，增进人民群众与政府之间的理解与信任。诉讼渠道不畅，必然导致上访增多，非理性行为加剧，必将严重影响社会和谐稳定，削弱人民法院行政审判”为大局服务，为人民司法”的职能作用”，并明确规定”各级人民法院要全面准确理解和适用，不得以任何借口随意限制受案范围”、”法律和司法解释没有明确排除的具体行政行为，应当属于人民法院行政诉讼受案范围”。打击犯罪、保护人民是公安机关的应有责任，但三亚市公安局吉阳分局却没有履行其法定职责，一审法院违反最高院的规定，以吴运妹错列被告为由裁定驳回起诉，是对吴运妹诉讼权利的残酷剥夺，所导致的结果极可能是迫使包括吴运妹在内的被征收人采用无休止的上访、暴力维权等方式解决征收纠纷，既极大的伤害了司法的公信力，又严重破坏了社会的和谐稳定。请求二审人民法院依法撤销（2017）琼0271行初114号行政裁定书，责令一审法院继续审理。
三亚市公安局吉阳分局辩称，1、政府的政策行为属于具体行政行为，吴运妹应依法向提起对征收、征用决定的，在法定时间内提起复议；2、具体行政为应当向具体部门表述诉求提起行政复议或法院提起诉讼；3、吴运妹所述其多次报警，列错被告等，这属于应当向相关部门提起行政复议衍生的请求，不属于公安机关管辖，其向法院提出应当列吉阳分局为被告，多次报警，这都应当属于吴运妹正确表达诉求的范围，这更加说明，此次行为不属于公安机关管辖。吴运妹所述其多次报警，给我们发ems，但是我们根本没有收到，无法证实该情况。政府部门各司其职，也并不是所有的财产保护都属于公安机关部门管辖，这并不是吴运妹所说的不利于社会安定。请求二审法院驳回吴运妹的上诉，维持一审裁定。
本院认为，本案吴运妹所诉行政行为实质上有两个即吴运妹请求保护人身财产安全，三亚市公安局吉阳分局行政不作为及三亚市公安局吉阳分局收到110接警通知，行政不作为。关于吴运妹请求保护人身财产安全，三亚市公安局吉阳分局行政不作为违法的诉求，从案件卷宗看，吴运妹未能提供其已向三亚市公安局吉阳分局提出申请保护人身、财产权的有效证据。吴运妹在没有证据证明其已向三亚市公安局吉阳分局提出保护人身、财产权的申请的情形下，提起三亚市公安局吉阳分局不履行法定职责的行政诉讼，没有事实根据，不符合《中华人民共和国行政诉讼法》第四十九条规定的提起履行法定职责行政诉讼的法定起诉条件。原审法院对该起诉予以驳回并无不妥。关于三亚市公安局吉阳分局收到110接警通知，行政不作为违法的诉求，三亚市110报警服务台是三亚市公安局的内设机构，在吴运妹没有证据显示三亚市公安局吉阳分局已接到三亚市110报警服务台指令出警通知的情况下（吴运妹提供的110报警电话记录仅证明吴运妹向110报警事实，未能证明110服务台已向关于三亚市公安局吉阳分局发出指令出警通知，其向110服务台的咨询电话录音亦不能有效证明110服务台已向关于三亚市公安局吉阳分局发出指令出警通知），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》第二十条第二款规定”行政机关的内设机构以自己的名义作出具体行政行为，当事人不服提起诉讼的，应当以该行政机关为被告”，应当以三亚市公安局为被告。吴运妹以三亚市公安局吉阳分局为本案被告，被告不适格，原审法院驳回起诉并无不妥。
综上，原审裁定认定事实清楚，适用法律正确，应予维持；吴运妹的上诉诉求及理由依法不能成立，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。
审判长左家锋
审判员李宝鹏
审判员林元贵
二〇一七年十二月五日
书记员谢材余
附相关法律条文
中华人民共和国行政诉讼法
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。
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