西安铁路运输法院      行 政 判 决 书     （2019）陕7102行初1291号     原告谭淑芝，女，1944年3月21日出生，汉族，住西安市莲湖区。   委托代理人任珊，男，1976年1月6日出生，汉族，住西安市莲湖区。系原告之子。   委托代理人任海，男，1969年5月31日出生，汉族，住西安市莲湖区。系原告之子。   被告西安市莲湖区桃园路街道办事处，住所地西安市莲湖区。   负责人黄博，主任。   委托代理人张建民，该单位工作人员。   委托代理人王新，陕西康铭律师事务所律师。   委托代理人索宇鹏，陕西康铭律师事务所律师。   第三人任涛，男，1967年8月9日出生，汉族，住西安市莲湖区。   委托代理人刘静，女，1967年9月24日出生，住西安市莲湖区。系任涛之妻。   原告谭淑芝诉被告西安市桃园路街道办事处（以下称桃园路街办）行政合同一案，于2019年4月1日向本院提起行政诉讼。本院于同日立案后，依法向被告送达了起诉状副本及应诉通知书。因任涛与本案的处理结果有法律上的利害关系，本院依法通知其为第三人参加诉讼。本院依法组成合议庭，于2019年5月22日对本案进行了公开审理。原告谭淑芝及其委托代理人任海、任珊，被告委托代理人张建民、王新、索宇鹏，第三人任涛及其委托代理人刘静出庭参加诉讼，本案现已审理终结。   第三人任涛与被告西安市莲湖区桃园路街道办事处于2016年8月4日签订编号为xxxx的《西安市国有土地上房屋征收与补偿产权调换协议（住宅）》。   原告谭淑芝诉称, 原告于2018年年初向西安市莲湖区人民法院提起诉讼,2018年11月21日,西安市莲湖区法院作出(2018)陕0104民初5436号民事判决书,经法院审理查明事实如下:“1986年4月,xxx公司为任显章(系原告丈夫)分得位于西安市莲湖区xx路xx号楼x单元x层xx号房屋一套,建筑面积37.76平方米。2011年6月27日,任显章交纳房款9038元,取得前述房屋的100%的产权。2018年8月2日,任涛(系原告儿子)伪造了任显章,任珊(系原告儿子),任海(系原告儿子)的笔迹及指印,向西电电力公司提供一份声明书及三人的身份证复印件。2016年8月4日,任涛与被告签订了编号为xxxx号的《西安市国有土地上房屋征收与补偿产权调换协议(住宅),该协议在签署当天生效。2016年8月8日,xx公司向任涛开具产权证明。2016年8月5日,任显章与原告签订了夫妻财产约定协议,该协议约定:该房屋及室内一切财产归在世一方所有,用于养老所用,任涛,任海,任珊均无权继承。2017年7月18日,任显章因病去世,按照该协议约定,上述房屋及房屋内一切财物应归潭淑芝所有,任涛无继承权。”2019年3月25日,西安市中级人民法院作出(2019)陕01民终1266号民事裁定书,对以上事实予以认可。任涛在2016年8月4日与被告签订了编号为xxxx号的《西安市国有土地上房屋征收与补偿产权调换协议(住宅)》,该协议在签署当天生效。2016年8月8日,xx公司向任涛开具产权证明在任涛未取得产权证明的情况下,被告与任涛签订了产权调换协议,违反了签署流程。综上所述,被告之行为严重侵犯了原告的合法权益,现原告特依据《中华人民共和国行政诉讼法》之相关规定向法院提起诉讼，诉请：1、依法确认编号为xxxx号的《西安市国有土地上房屋征收与补偿产权调换协议（住宅）》无效；2、本案诉讼费用由被告承担。   原告谭淑芝向本院提交了以下证据：   1.西安市莲湖区人民法院（2018）陕0104民初5436号民事判决书。   2.陕西省西安市中级人民法院（2019）陕01民终1266号民事裁定书。   以上证据证明经法院裁判原告阐述的事实全部属实。   3.2016年8月8日产权证明。   4. 《西安市国有土地上房屋征收与补偿产权调换协议（住宅）》。   5、声明。   6.西电系统公司物业处房屋价格表。   7.收款收据。   以上证据3-7证明涉案房屋征收时原始产权人是任显章，是任显章交付的费用，该房产与第三人及单位均无关，100%产权系任显章本人所有。   8.夫妻财产约定协议。   该证据证明2016年8月5日原告与其丈夫签署的约定协议，对自己名下的财产进行了安排。   9.xx整流器厂分配房产依据。   该证据证明涉案房产在征收时原始产权人是任显章，是任显章交付的费用，该房产与第三人及单位均无关，系任显章本人100%产权所有。   10.房屋征收通告（莲房征告字[2016]2号）。   11.国有土地上房屋征收与补偿条例。   以上两份证据证明原告有起诉的主体资格。   12.证人杨仁权出具的关于夫妻财产约定协议签订情况说明。   该证据证明原告与其丈夫签署的夫妻财产约定协议是真实有效的，是本人真实意愿。   13.陕西省人民医院诊断证明书。   该证据证明签署协议时原告丈夫任显章想书写但因身体原因该由任显章口述，原告书写，证人签字。   14.西安市莲湖区人民法院枣园法庭2018年8月30日开庭笔录。   15.西安市中级人民法院2019年3月7日询问笔录。   以上两份证据证明原告提供的证据出自上述两个笔录，均是第三人认可的。   16.材料《根据桃园路街道办事处行政答辩状原告发言》一份。   该证据证明目的为对原告方意见的补充。   17.证人赵淑芳证言。   该证据证明夫妻签署的约定是真实有效的，街办签约产权证明及声明，被告和第三人签署前任涛并未提交任何证明，被告仅依据一份声明就作为依据，不能证明第三人是产权人。   被告桃园路街办辩称，被告与任涛签订的编号为xxxx号的《西安市国有土地上房屋征收与补偿产权调换协议(住宅)》(以下简称“产权调换协议”)有效,原告谭淑芝的诉请缺乏事实与法律依据,依法应予驳回。一、被告与任涛签订的“产权调换协议”,签约主体资格的认定,协议的形式和内容均不违反国家禁止性法律规定,协议合法、有效。2016年7月15日,西安市莲湖区人民政府作出关于对桃园坊棚户区改造项目涉及的国有土地上房屋予以征收的决定,被告为房屋征收实施单位。任涛占有使用的涉案房屋在征收范围内,任涛向被告出具《桃园一坊棚户区改造项目承诺书》,承诺签署的“产权调换协议”系产权人真实意愿,如有争议由任涛承担一切法律和经济责任,与被告无关。2016年8月4日被告与任涛签订“产权调换协议”,任涛向被告交付涉案房屋。2016年8月8日任涛向被告出具由xx公司即产权确认单位出具的《产权证明》,确认任涛为涉案房屋的产权所有人,随后于2016年9月20日被告与任涛就“产权调换协议”有关费用进行了结算。原告不是“产权调换协议”的签约主体,原告居住在征收房屋相邻小区,房屋征收期间其从未向被告提出过任何主张,协议的协商、签订以及结算均与其无关,而且“产权调换协议”的签订也并非被告单方行为。莲湖区人民法院作出的(2018)陕0104民初5436号民事判决已被终审法院撤销。被告与任涛签订的编号:xxxx“产权调换协议”未违反国家禁止性法律规定,应依法有效。二、原告不是涉案房屋的产权所有人,被告未侵犯其法权益,其诉请应予依法驳回。被告是依法实施征收,征收的是涉案房屋,只有涉案房屋的产权所有人才具有签订协议和提出异议的资格,产权证明是签订协议的必要条件。原告至今未能出具取得涉案征收房屋产权的有效证明,任涛给被告出具的房屋《产权证明》也未被产权确认单位或人民法院撤销。综上,原告不具有申请确认“产权调换协议”无效的主体资格,其诉请缺乏事实与法律依据,依法应予驳回。   被告桃园路街办向本院提交了以下证据：   1.西安市莲湖区人民政府莲房征决字〔2016〕2号《关于对桃园一坊棚户区改造项目涉及的国有土地上房屋进行征收的决定》。   证明被告是依法实施房屋征收，具有对被征收房屋产权人签订征收与补偿协议主体资格的认定。   2.《西安市国有土地上房屋征收与补偿产权调换协议（住宅）》（编号 xxxx）。   证明被告与任涛签订的《西安市国有土地上房屋征收与补偿产权调换协议（住宅）》（编号xxxx）签约主体资格的认定以及协议的形式、内容未违反国家禁止性法律规定，原告不是协议的相对人，协议与原告无关，原告无确认协议无效的主体资格。   3.《xxx棚户区改造项目承诺书》。   证明任涛是涉案征收房屋即xx小区xx号楼x层xx号（建筑面积37.76㎡） 房屋的实际占有人，且自行承诺是涉案房屋产权所有人，且自愿承担因产权发生争议引起的一切法律和经济责任，与被告无关。任涛的承诺是认定征收补偿协议签订主体资格的必要条件，任涛的承诺具有法律效力。   4.《产权证明》。   证明依据产权确认单位xx公司出具的《产权证明》，确认任涛是涉案征收房屋即xx小区xx号楼x层xx号（建筑面积37.76㎡）房屋的产权所有人，产权为个人全部产权。任涛具有签订《西安市国有土地上房屋征收与补偿产权调换协议（住宅）》的主体资格，原告不是涉案房屋产权人。   第三人任涛述称，1.原告出示的所谓的2016年8月5日的财产约定是后来伪造的,任显章的签字系伪造。2.本案涉及房产,自1986年4月分配以来一直由任涛居住,由于作为长子面临结婚,任涛当时尚不够分房资格,其父为了解决任涛结婚无房困难,当时单位奖励任显章单位工房(不到38㎡),为任涛结婚生活居住使用,因为国企不可能给一名职工分两套房,而任涛后来也再没有分过房。自入住以来房费、水电费、物业费均为任涛支付。该房屋左邻右舍都可为任涛作证。3.任显章在世时对三个儿子的房子都有安排,此案这套房屋安置了长子任涛,另外给次子在xx购买了一套小产权房(84㎡左右,此套房屋原先写的是谭淑芝的名字,后来任海私自改到自己名下)建议法庭进行核实，原告现在所住xx小区房屋(55㎡左右)留给三子任珊。4.2011年单位进行房改,工房转私产,房改费用为任涛支付，共计9000余元,此后凭此发票才可进行拆迁产权调换协议的签订。原告针对此事当时并无置喙。5.2016年适逢街道棚户区进行大型拆迁改造,任涛签订产权调换协议并第一时间搬离房屋,当时拆迁工作涉及房屋较多,在当时整个西郊影响较大,原告和本案涉及房屋仅隔一条马路,未对此房屋产权归属提出任何异议。6.在任显章因病去世一年多后,原告突然拿出所谓任涛父亲身后财产约定,任涛认为此协议为虚假伪造,申请法庭予以调查核实。   第三人任涛向本院提交如下证据：   1.实际使用房屋证明三份。   证明任涛自1986年一直在该房屋住至拆迁。   经庭审质证，原告对被告提交的证据1真实性认可，但被告没有履行核实产权人及产权性质的义务，对证据2真实性认可，但第三人没有签约的权利，证据3因没有日期真实性不认可，证据4是在签署协议后后补的，证明目的不认可，不认可真实性及合法性有效性。原告对第三人提交的证据质证意见为只能证明第三人曾经在居住，不能证明是产权人。   被告对原告提交的证据1、2真实性、合法性无异议，但是莲湖法院文书已经被中院撤销，证明目的不认可，对证据3、4真实性认可，证明目的不认可，证据4签约主体是任涛，也是任涛实际占有并交付，整个拆迁过程中原告及其代理人从未到街办主张过任何权利，对证据5-9真实性不认可，所有证据与被告签订产权调换协议无关，不能证明产权所有人是任显章，与本案没有关联性，对证据10、11真实性无异议，证明目的不认可，对证据12、13.真实性不认可，对证据14、15真实性认可，证明目的不认可，对证据16不认可，原告要求确认的是协议无效，该证据无法证明涉案房屋是原告所有，或者是任显章所有，产权证明一、二审法院并未撤销。家庭内部财产争议与本案无关。对证人证言真实性、证明目的及关联性均不认可。被告对第三人提交的证据对三份证明真实性无法确认，证明目的部分认同，只能确认被告前期有入户调查，这个房屋实际占有实际控制人是任涛。   第三人对原告证据的质证意见与被告一致。第三人对被告提交的证据真实性、合法性、关联性及证明目的均认可。   本院对上述证据认定如下： 对原告提交的证据1-10、证据13-15真实性予以确认，原告提交的证据11因是法律规定不作为证据认定，原告提交的证据12证人虽未出庭作证，但结合西安市中级人民法院生效法律文书认定的事实本院对其真实性予以确认，对原告提交的证据16因系自书材料不符合证据属性，不作为证据采信，对证人赵淑芳证言真实性予以确认。对被告提交的证据真实性予以确认。对第三人提交的证据因原告认可第三人在涉案房屋居住，对真实性予以确认。   经审理查明，2016年7月15日西安市莲湖区人民政府作出莲房征决字〔2016〕2号《关于对xx棚户区改造项目涉及的国有土地上房屋予以征收的决定》，启动xx棚户区改造项目，被告西安市莲湖区桃园路街道办事处为该项目征收实施单位。本案涉及的位于西安市莲湖区xx路xx号楼x单元x层xx号的房屋位于征收范围内。2016年8月5日第三人任涛以被征收人身份与西安市莲湖区桃园路街道办事处签订编号为xxxx的《西安市国有土地上房屋征收与补偿产权调换协议（住宅）》一份。原告谭淑芝认为上述协议侵犯自己权益，提起诉讼。2018年6月12日西安市莲湖区人民法院受理了谭淑芝起诉的确认任涛与西安市莲湖区桃园路街道办事处于2016年8月4日签订编号为xxxx的《西安市国有土地上房屋征收与补偿产权调换协议（住宅）》无效一案，莲湖区人民法院审理后作出（2018）陕0104民初5436号民事判决书，支持了原告的诉讼请求。后该案经西安市中级人民法院二审作出（2019）陕01民终1266号民事裁定书，裁定撤销原判并驳回谭淑芝的起诉。该二审裁定书同时确认：“对当事人二审争议的事实，本院认定如下：一审法院查明的事实属实。”本院查明，1986年4月，原告谭淑芝丈夫暨本案第三人任涛父亲任显章（2017年7月18日因病亡故）由xx公司为其分得位于西安市莲湖区xx路xx号楼x单元x层xx号的房屋一套，该房经房改后，任显章交纳房款取得房屋全部产权。在任涛2016年8月4日与被告桃园路街道办签订协议时，任涛持2016年8月2日《声明》一份：“我是xx楼xx号房的房主任显章，育有子女三人：长子任涛，次子任海，三子任珊。本人自愿将xx（无法辨别）房产的产权由长子任涛继承购买，今后不管发生任何关于该房的经济纠纷与xx公司无关。”该声明房主处签名为任显章，同意处签名为任海，任珊。日期为2016年8月2日。该《声明》无原告签字。2016年8月8日xx公司为任涛出具《产权证明》一份，证明xx小区xx号楼x单元x层xx号为任涛个人全部产权。   另查明，在2018年8月30日莲湖区人民法院庭审质证中，任涛对上述《声明》的质证意见为：“真实，他们三人的签字和捺印都是真的，都是他们三人本人的签字和捺印，是我妻子刘静起草书写的，他们三个人本人签字、捺印认可的。可以鉴定签名、捺印。”在2019年3月7日西安市中级人民法院的询问笔录中，任涛代理人对《声明》的意见为：“是任显章给的，不知道谁写的”。当审判员发问“任珊、任海，声明是否是你们签的？”时，任珊、任海均称不知道，任涛称：“我不知道，是我爸给我的。”当发问任涛：“8月2日声明上的字是否是你写的？”时，任涛称：“我不知道，应该是我爸写的，是我媳妇刘静从任显章处拿给我的……”。同时西安市中级人民法院2019年3月7日询问笔录中被告桃园路街办对《产权证明》的意见为：“我们当时只能联系到任涛，任涛给我们出具了8月2日声明，我们以此给他出具了产权证明，当时没有调查核实。”   本院认为，《国有土地上房屋征收与补偿条例》第二条规定：“为了公共利益的需要，征收国有土地上单位、个人的房屋，应当对被征收房屋所有权人（以下称被征收人）给予公平补偿。”第二十五条规定：“房屋征收部门与被征收人依照本条例的规定，就补偿方式、补偿金额和支付期限、用于产权调换房屋的地点和面积、搬迁费、临时安置费或者周转用房、停产停业损失、搬迁期限、过渡方式和过渡期限等事项，订立补偿协议……”。上述法律规定表明，在房屋征收中有资格签订补偿协议的双方为房屋所有权人和房屋征收部门。《国有土地上房屋征收与补偿条例》第五条规定：“房屋征收部门可以委托房屋征收实施单位，承担房屋征收与补偿的具体工作。房屋征收实施单位不得以营利为目的……”。本案中，被告桃园路街办作为涉案被征收项目的房屋征收实施单位，有与房屋所有权人签订安置补偿协议的主体资格。但本案中，根据已查明的事实，编号xxxx的《西安市国有土地上房屋征收与补偿产权调换协议（住宅）》所对应的西安市莲湖区xx路xx号楼x单元x层xx号的房屋原所有权人为原告之夫任显章。签订协议时任显章尚在世。第三人任涛在与被告桃园路街道办签订协议时所持《声明》中虽将该房屋交由任涛继承，但根据本院查明的事实，对该声明任涛两个弟弟均不认可真实性，原告作为任显章妻子亦不认可声明内容。任涛对《声明》来历的解释也前后不一。同时被告据以认定房屋权利人的《产权证明》，出具方表示系根据《声明》出具，未调查核实，且该《产权证明》出具时间为2016年8月8日，晚于案涉协议签订时间。因此，被告在签订案涉协议时确定的产权人有误，案涉协议应属无效。根据《中华人民共和国行政诉讼法》第七十五条之规定，判决如下：   确认任涛与西安市莲湖区桃园路街道办事处于2016年8月4日签订的编号为xxxx的《西安市国有土地上房屋征收与补偿产权调换协议（住宅）》无效。   案件受理费50元，由被告西安市莲湖区桃园路街道办事处负担。    如不服本判决，可在判决书送达之日起十五日内提起上诉，向本院递交上诉状，并按对方当事人的人数提出副本，上诉于西安铁路运输中级法院。         审判长 江海   人民陪审员 娄静霜   人民陪审员 刘京菊      二〇一九年九月二十日     书记员  王 彬                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                             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