海南省海口市中级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼01行终12号
上诉人（原审原告）周守育，男，汉族，1984年7月27日出生，住海口市。
委托代理人莫海鹏，海南广哲律师事务所律师。
委托代理人朱美如，海南广哲律师事务所实习律师。
被上诉人（原审被告）海口市龙华区新坡镇人民政府，住所地海口市龙华区新坡镇新坡墟新坡镇人民政府。
法定代表人王首汇，镇长。
委托代理人邢杰宏，海口市龙华区龙泉法律事务所法律工作者。
被上诉人（原审第三人）海口市龙华区新坡镇文丰村民委员会卜通村民小组，住所地海口市龙华区卜通村。
负责人周松发，组长。
上诉人周守育因与被上诉人海口市龙华区新坡镇人民政府（以下简称新坡镇政府）、海口市龙华区新坡镇文丰村民委员会卜通村民小组（以下简称卜通村民小组）不履行法定职责纠纷一案，不服海口市美兰区人民法院（2016）琼0108行初7号行政裁定，向本院提出上诉。本院于2017年2月16日立案后，依法组成合议庭，并于2017年3月20日公开开庭审理，上诉人的委托代理人莫海鹏、被上诉人新坡镇政府的委托代理人邢杰宏到庭参加诉讼。被上诉人卜通村民小组经本院合法传唤，无正当理由拒不到庭参加诉讼。本案现已审理终结。
原审裁定认为：周守育诉请确认新坡镇政府、卜通村民小组不受理、审批周守育的建房申请和危房改造补贴申请的不履行法定职责的行为违法。琼建村〔2015〕239号《海南省住房和城乡建设厅关于深入开展农村居民建房报建试点工作有关事项的通知》、《海南省农村居民建房审批办法》、海府〔2016〕1号《海口市人民政府关于印发我市农村宅基地建房管理办法的通知》规定，海南省农村居民建房流程是由建房户向所在村委会申领并填写申请表，经所在村民小组讨论同意后报村委会审核及公示，上报乡镇人民政府审核、发证。从上述规定可知，报建受理单位为村委会，乡镇政府为审核单位，受理建房申请与审批建房申请不是单一的行政程序。建房申请的受理及审批与危房改造补贴申请的受理及审批，所依据的事实和理由不同、适用的法律法规不同、行政行为的内容不同，是完全不同的行政行为。如周守育要求新坡镇政府或卜通村民小组履行建房申请的受理及审批、危房改造补贴申请的受理及审批的职责，应分别提起行政诉讼，现周守育一并向人民法院提起行政诉讼，不符合法律规定，且周守育的起诉不具有合并审理的情形，应予以驳回。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（十）项的规定，裁定如下：驳回周守育的起诉。本案不收取案件受理费。
上诉人周守育不服原审裁定，向本院提起上诉称：一、一审裁定程序错误、法律适用错误，一审裁定依法应予以撤销。本案中一审法院认为受理与审批建房，危房补贴申请的受理及审批属于两个不同的行政行为，应分别提起行政诉讼，不应一并向提起行政诉讼，因此予以驳回起诉。适用法律错误，程序违法。上诉人的二项诉讼请求，如果一审法院认为不能合并审理，依法应进行告知释明，在根本没有进行告知释明是否选择一项提起行政诉讼情况下，直接驳回起诉，程序违法。
二、一审裁定认定事实错误，应予以撤销。1、一审裁定当中认为受理和审批是由两个行政单位做出的两个行政行为，是事实认定错误。村委会作为村民自治组织并不是行政单位，并没有行政受理的权利，其受理上诉人的农村建房报建材料权利来源于镇政府的授权，因此本案当中将村委会列为第三人并不是列为被告。2、一审裁定当中认为受理和审批是两个行政程序，是不同的行政行为，应分别提起行政诉讼，是事实认识错误。受理和审批是一个行政行为的不同阶段，具有不可分性。法理上，受理是对材料的形式审核，而审核是对材料的内容进行判定。但在本案当中，村委会接受乡镇府的授权时，已经行使对材料内容进行审核判定。正是基于此项事实，才一再不受理上诉人的材料，不仅如此，受理应当出具受理通知书、一次性材料告知书，但在本案当中村委会在接收材料时就直接认定上诉人不符合规定，不具备危房改造申请的条件，因此不予以受理。从实际上看，在受理材料同时就已经在审核，因此是一个行政行为，并非两个行政行为。
三、上诉人符合建房申请及危房改造补贴的条件，在农民房屋是危房的情况下，申请建房以及申请危房补贴是必须共同进行的行为，不可分割，依法应进行共同审理，而且，受理单位都是村委会及镇政府，上诉人在上述居住权益受到侵害情况下，应享有起诉的权利。上诉人是海南省海口市××村村民，因自家宅基地上的老宅年久失修，已经不适合居住。因此根据现实情况，根据《海南省农村居民建房审批办法》第八条的相关规定，向卜通村民小组提出建房申请，提交了相应的材料。由于上诉人的老房子符合《海南省2015年农村危房改造实施方案》当中所说的危房，根据《海南省2015年农村危房改造实施方案》第二条的相关规定，上诉人要求进行危房改造补贴以及申请建房的行为符合政策法规的规定。请二审法院对上诉人的合法权益予以确认。
综上所述，一审法院的裁定认定的事实错误、法律适用错误、程序错误，请求二审法院撤销（2016）琼0108行初7号行政裁定，指令美兰区法院审理本案。
被上诉人新坡镇政府答辩称：一、针对上诉人上诉状的第一点进行答辩，镇政府收到两份起诉状，我们也向一审法院提出，上诉人的诉讼请求并不明确，要求周守育变更第三人和明确诉讼请求。过一个月后，又同样收到一份新的诉状变更第三人为卜通村，在我们的答辩状中也明确说明。二、受理和审批，受理的是村委会，审批是政府部门，这里面有两个诉讼，一个是建房和报建；另一个是危房改造，两个部门是不相同的，也是两个不同的行政程序。
原审第三人卜通村民小组未陈述。
本院认为：上诉人周守育在原审中提出了3个诉讼请求：1、确认新坡镇政府及卜通村民小组不受理、审批周守育建房申请的行政行为违法，构成行政不作为；2、确认新坡镇政府及卜通村民小组不受理、审批受理周守育办理危房改造补贴申请的行为违法，构成行政不作为；3、判令新坡镇政府及卜通村民小组给周守育的建房申请及危房改造补贴申请履行法定职责，作出行政许可审批意见。原审裁定以建房申请的受理及审批与危房改造补贴申请的受理及审批是不同的行政行为，周守育应分别提起行政诉讼，周守育一并向人民法院提起行政诉讼不符合法律规定为由，驳回周守育的起诉。原审法院在发现周守育的诉请属于不同的行政行为，不能合并在一个案件中审理，应分别起诉的情况下，应给予当事人释明，而原审法院未对周守育进行释明，直接以周守育的起诉不符合法律规定为由驳回其起诉，不利于充分保护当事人的诉讼权利，依法应裁定撤销原审裁定，指令原审法院继续审理。依照《最高人民法院关于执行<中华人民共和国行政诉讼法>若干问题的释》第六十八条的规定，裁定如下：
一、撤销海口市美兰区人民法院（2016）琼0108行初7号行政裁定；
二、指令海口市美兰区人民法院继续审理。
审判长潘娜
审判员何芳
审判员吴茜
法官助理ＸＸ
书记员麦海燕
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自然人之间的借款合同对支付利息没有约定或者约定不明确的，视为不支付利息。[ly]
自然人之间的借款合同约定支付利息的，借款的利率不得违反国家有关限制借款利率的规定。[ly]\'},{法条名称:\'第六十条第一款\',法条内容:\'
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第二百零五条
借款人应当按照约定的期限支付利息。对支付利息的期限没有约定或者约定不明确，依照本法第六十一条的规定仍不能确定，借款期间不满一年的，应当在返还借款时一并支付；借款期间一年以上的，应当在每届满一年时支付，剩余期间不满一年的，应当在返还借款时一并支付。[ly]\'},{法条名称:\'第二百零六条\',法条内容:\'
第二百零六条
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第二百一十条
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５８．企业法人的法定代表人和其他工作人员，以法人名义从事的经营活动，给他人造成经济损失的，企业法人应当承担民事责任。[ly]\'}]},{法规名称:\'《中华人民共和国民事诉讼法（2013年）》\',Items:[{法条名称:\'第一百五十条第一款\',法条内容:\'
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（四）一方当事人因不可抗拒的事由，不能参加诉讼的；[ly] （五）本案必须以另一案的审理结果为依据，而另一案尚未审结的；[ly]
（六）其他应当中止诉讼的情形。[ly] 中止诉讼的原因消除后，恢复诉讼。[ly]\'},{法条名称:\'第六十四条第一款\',法条内容:\'
第六十四条当事人对自己提出的主张，有责任提供证据。[ly]
当事人及其诉讼代理人因客观原因不能自行收集的证据，或者人民法院认为审理案件需要的证据，人民法院应当调查收集。[ly]
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