海南省高级人民法院
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（2017）琼行赔终51号
海南省高级人民法院
行政赔偿判决书
（2017）琼行赔终51号
上诉人（一审原告）海南联合资产管理有限公司。住所地海口市滨海大道**号南洋大厦**楼*房。
法定代表人刘双洋，该公司董事长。
委托代理人刘宁刚、胡永秀，海南新概念律师事务所律师。
被上诉人（一审被告）澄迈县人民政府。住所地澄迈县金江镇文化北路***号。
法定代表人司逎超，该县县长。
委托代理人苏为飘，澄迈县国土资源局科员。
委托代理人廖波，海南瑞来律师事务所律师。
上诉人海南联合资产管理有限公司（以下简称联合资产公司）因诉被上诉人澄迈县人民政府（以下简称澄迈县政府）行政赔偿纠纷一案，不服海南省第一中级人民法院（以下简称一审法院）（2017）琼96行赔初18号行政赔偿判决（以下简称一审判决），向本院提起上诉。本院于2017年10月25日立案受理后，依法组成合议庭审理本案。经本院审查联合资产公司上诉中没有提出新的事实、证据和理由，符合《中华人民共和国行政诉讼法》第八十六条的规定，本院决定不开庭审理本案，但于2017年12月8日组织联合资产公司与澄迈县政府双方到庭进行了询问，联合资产公司的委托代理人刘宁刚、胡永秀，澄迈县政府的委托代理人廖波到庭参加询问。本案现已审理终结。
本案行政赔偿所涉行政行为：1992年8月，澄迈县政府给海南南奥塑胶化工有限公司（以下简称南奥公司）颁发《国有土地使用证》，该证记载了土地使用者为南奥公司，涉案土地位于澄迈县老城镇盈滨半岛，土地用途为旅游业，批准使用期限为柒拾年，以及涉案土地的用地面积为陆万陆仟陆佰陆拾陆平方米（66666㎡）等内容。但该证土地证号处仅有”老城国用（19**）字第号”的内容，没有具体编号，该证中也没有涉案土地的四至，以及权属界线的坐标套图等。联合资产公司以澄迈县政府不负责任给南奥公司下发该国有土地使用证，并且把权利人的国有土地使用权搞丢了，导致联合资产公司申请法院强制执行南奥公司拖欠借款本金及利息的债务案时，无法对该涉案100亩国有土地使用权行使抵押权，造成联合资产公司财产损失等为由，提起本案诉讼请求澄迈县政府进行行政赔偿。
一审查明：1992年8月，澄迈县政府为案外人南奥公司颁发了一本《国有土地使用证》，该证登记的土地使用者为南奥公司，土地面积为66666平方米（100亩），土地用途为旅游业，批准使用期限为70年。但该《国有土地使用证》未登记证号、图号、地号、土地四至及宗地图。1992年11月26日，南奥公司向原中国工商银行海南信托投资公司（以下简称原工行海南信托公司）借款本金150万元，并以其位于澄迈县老城镇盈滨半岛100亩国有土地作为抵押借款担保。1992年11月30日，原澄迈县土地管理局（即现澄迈县国土资源局，以下简称澄迈县国土局）向原工行海南信托公司出据《证明》。该《证明》内容为：”海南南奥塑胶化工有限公司在老城大场桃岭所购100亩土地，我局已办理完有关土地出让手续，拟进行项目建设。经研究，同意该公司以该100亩土地作为贷款的抵押物，不再做别的抵押与转让。”南奥公司逾期未还款，承接原工行海南信托公司业务的中国工商银行海南省支行营业部向海口市龙华区人民法院（以下简称龙华法院）提起民事诉讼。2002年6月19日，龙华法院作出（2002）龙初字第106号民事判决书，判决中国工商银行海南省支行营业部对南奥公司用以抵押的位于澄迈县老城镇盈滨半岛的100亩土地的拍卖价款有优先受偿权。南奥公司未自动履行上述判决确定的义务，该营业部申请龙华法院强制执行。2004年10月28日，中国工商银行股份有限公司海南省支行将上述判决确定的债权及附属权利移交给联合资产公司。2013年3月18日，龙华法院以被执行人已下落不明，其用于抵押的位于澄迈县老城盈滨岛100亩土地因没有具体证号和土地位置无法处理等为理由，终结上述生效民事判决的执行程序。
2016年1月19日，联合资产公司向澄迈县国土局提交赔偿申请书，澄迈县国土局未作答复。2016年5月18日，联合资产公司以澄迈县国土局为被告向澄迈县人民法院提起行政赔偿诉讼。该院于2016年11月14日作出（2016）琼9023行初14号行政裁定，以澄迈县国土局于1992年出具证明的行政行为对联合资产公司的请求权明显不产生实际影响为由，驳回了联合资产公司的起诉。该行政裁定现已生效。2016年12月16日，联合资产公司向澄迈县政府申请明确《国有土地使用证》四至。澄迈县政府收到该申请后交由澄迈县国土局办理。2017年1月18日，澄迈县国土局作出意见，称无法明确上述土地使用证的具体四至及相关情况。2017年3月2日，澄迈县政府将澄迈县国土局的办理意见转交给联合资产公司。2017年3月7日，联合资产公司又向澄迈县政府提交《行政赔偿申请书》，以无法明确土地使用权的四至及具体位置导致无法执行及胜诉权无法实现为由，请求赔偿150万元及银行利息。2017年4月20日，澄迈县政府作出澄府[2017]39号《行政赔偿决定书》（以下简称39号赔偿决定），驳回了联合资产公司的赔偿请求。联合资产公司遂向一审法院提起行政赔偿诉讼，请求澄迈县政府赔偿给联合资产公司造成的150万元借款本金、44641978.40元利息及24934元案件受理费的损失。
一审认为：本案为行政赔偿之诉，争议焦点为：1.联合资产公司是否具有诉讼主体资格；2.联合资产公司的起诉是否超过法定的起诉期限；3.联合资产公司的赔偿请求是否有事实根据和法律依据。1.关于联合资产公司是否具有诉讼主体资格问题。根据《中华人民共和国国家赔偿法》第二条的规定，国家机关和国家机关工作人员行使职权，有本法规定的侵犯公民、法人和其他组织合法权益的情形，造成损害的，受害人有依照本法取得国家赔偿的权利。本案中，联合资产公司在人民法院对涉案土地无法强制执行后，向澄迈县政府书面申请明确土地四至范围，但澄迈县政府答复联合资产公司无法查找土地位置。因此，澄迈县政府作为涉案土地的登记颁证机关，却无法明确土地使用权的四至及具体位置，导致联合资产公司的优先受偿权无法实现。根据上述规定，联合资产公司有权提起本案行政赔偿之诉。2.关于联合资产公司的起诉是否超过法定的起诉期限的问题。澄迈县政府主张联合资产公司的起诉已经超过20年的最长起诉期限，但本案为联合资产公司单独提起的行政赔偿之诉。在本案起诉之前，澄迈县政府对联合资产公司的赔偿申请，作出了书面的行政赔偿决定书，故关于本案的起诉期限问题应当适用《中华人民共和国国家赔偿法》第十四条第二款的规定，即赔偿请求人可以自赔偿义务机关作出赔偿或者不予赔偿决定之日起三个月内，向人民法院提起诉讼。本案中，澄迈县政府于2017年4月20日作出39号赔偿决定，联合资产公司于2017年6月19日提起诉讼，并未超过三个月的法定起诉期限。澄迈县政府的该项主张，应不予采信。3.关于联合资产公司的赔偿请求有无事实根据和法律依据的问题。据本案已查明的案件事实，在对涉案土地强制执行过程中，龙华法院以涉案土地没有具体证号和土地位置因而无法处理为由，终结了强制执行程序，并告知联合资产公司如发现有可供执行的财产，可以再提出执行申请。在本案诉讼过程中，联合资产公司经查找取得了南奥公司用地红线图，该红线图上详细记载了坐标点，联合资产公司尚有通过执行程序实现自己合法权益的可能。故联合资产公司主张的赔偿请求没有事实根据和法律依据，依法应予驳回。综上，一审法院依照《最高人民法院关于审理行政赔偿案件若干问题的规定》第三十三条之规定，判决驳回联合资产公司的赔偿请求。
联合资产公司上诉称：澄迈县政府给南奥公司颁发的《国有土地使用证》，明确记载了100亩土地面积的内容，联合资产公司一审时还提交了涉案土地红线图原件。但经澄迈县政府与澄迈县国土局多次反复核对，却无法根据该红线图找到涉案100亩土地的具体位置，致使联合资产公司不能通过强制执行南奥公司名下涉案100亩国有土地使用权来实现合法权益，澄迈县政府自然应当承担赔偿责任。一审判决认定联合资产公司尚有通过执行程序实现合法权益的可能，并据此驳回联合资产公司的诉讼请求显然错误，应予以纠正。综上，一审判决错误，澄迈县政府给南奥公司颁发未登记证号、图号、地号、土地四至及宗地图的土地证，致联合资产公司不能通过执行该证所涉100亩国有土地使用权来实现合法权益。请求二审撤销一审判决并改判支持联合资产公司的诉讼请求。
澄迈县政府辩称：本案中，澄迈县国土局作出相应行政证行为，联合资产公司却要求澄迈县政府进行赔偿，存在赔偿主体不对的问题，也没有事实和法律依据。其余二审答辩意见与一审答辩意见一致。
二审审理期间，联合资产公司和澄迈县政府均没有向本院提交新证据。
一审查明的事实与二审查明的事实一致，本院予以确认。
本院认为：本案争议焦点，即澄迈县政府于1992年8月给南奥公司颁发《国有土地使用证》的行为，是否存在违法行使职权侵犯联合资产公司财产权并造成损害，是否依法应当对联合资产公司进行行政赔偿。首先，本案中，澄迈县国土局于1992年11月30日给原工行海南信托公司出据《证明》证实，同意南奥公司以涉案100亩土地作为贷款的抵押物，不再做别的抵押与转让。同时，该证明证实涉案土地位于澄迈县老城大场桃岭。龙华法院（2002）龙初字第106号生效民事判决亦认定，澄迈县国土局给原工行海南信托公司出据《证明》，同意南奥公司以上述位于澄迈县老城大场桃岭的100亩土地作为贷款的抵押。但该判决主文确定的却是100亩用以抵押的土地位于澄迈县老城镇盈滨半岛，原告对该100亩土地的拍卖价款有优先受偿权。可见，上述土地是否是同一块土地存在疑问。在此情况下，也就不能确定澄迈县政府给南奥公司颁发《国有土地使用证》的行为侵犯了联合资产公司财产权并造成损害。其次，根据本案的具体事实情况，澄迈县政府给南奥公司颁发的《国有土地使用证》没有废止或被撤销，涉案100亩国有土地使用权目前只是处于不能明确具体位置的状态。本案中，联合资产公司没有证据证明登记在南奥公司名下的涉案100亩国有土地使用权已经灭失，故联合资产公司以澄迈县政府不负责任给南奥公司下发国有土地使用证，并且把权利人的国有土地使用权搞丢了等为由，请求澄迈县政府进行行政赔偿，理由不成立。结合本案的实际，联合资产公司所称的损失不能确定，故其相应的赔偿请求，亦不能得到支持。联合资产公司可以一审时提交的南奥公司用地红线图为据，要求澄迈县政府履行相应的法定职责，明确涉案100亩土地的具体方位、四至、权属界线等，如最终确定涉案100亩国有土地使用权已经灭失，并造成抵押权不能实现，方可依法主张相应权益。因此，一审判决驳回联合资产公司的赔偿请求并无不当。联合资产公司以一审判决错误、澄迈县政府侵犯其合法权益应承担赔偿责任等为由提起的上诉不成立，应不予支持。
综上，一审判决认定事实清楚，审判程序合法，适用法律正确，判决结果并无不当，联合资产公司的上诉不成立。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，判决如下：
驳回上诉，维持原判。
本判决为终审判决。
审判长王鉴
审判员胡春城
审判员唐进
二○一七年十二月十二日
书记员李梦姣
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。
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。
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