海南省高级人民法院
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（2017）琼行赔终12号
海南省高级人民法院
行政赔偿裁定书
（2017）琼行赔终12号
上诉人（原审原告）王海琛，男，1956年5月18日生，蒙古族，现住内蒙古鄂尔多斯市。
委托代理人闫晋英，女，1947年10月13日出生，汉族，现住北京市朝阳区。
委托代理人刘继萍，女，1955年1月19日出生，汉族，现住山西省太原市。
被上诉人（原审被告）三亚市人民政府，住所地三亚市新风路257号。
法定代表人吴岩峻，该市市长。
委托代理人郑大平，三亚市法制办公室工作人员。
被上诉人（原审被告）三亚市综合行政执法局，住所地三亚市凤凰路212号。
法定代表人王宏宁，该局局长。
委托代理人罗政伟，该局工作人员。
委托代理人林广博，海南祥瑞律师事务所律师。
原审第三人三亚市热带农业科学研究院，住所地三亚市崖州区北郊玉井温泉。
负责人符继业，该院干部。
原审第三人三亚玉井温泉休闲农业发展有限公司，住所地三亚市崖州区北岭路。
法定代表人张娟，该公司执行董事。
原审第三人三亚广励智信投资置业有限公司，住所地三亚市解放路524号汽车大厦804房。
法定代表人荣浩男，该公司执行董事。
上诉人王海琛因其诉被上诉人三亚市人民政府（以下简称三亚市政府）、被上诉人三亚市综合行政执法局（以下简称三亚市执法局）及原审第三人三亚市热带农业科学研究院（以下简称三亚市热科院）、原审第三人三亚玉井温泉休闲农业发展有限公司（以下简称玉井温泉公司）、原审第三人三亚广励智信投资置业有限公司（以下简称广励智信公司）建设规划行政管理强制拆除赔偿一案，不服海南省三亚市中级人民法院（2016）琼02行赔初57号行政赔偿判决，向本院提起上诉。本院依法组成合议庭，于2017年5月5日公开开庭审理了本案。因王海琛提起本案行政诉讼的同时，一并提起行政赔偿诉讼。本院依照《最高人民法院关于审理行政赔偿案件若干问题的规定》第二十八条之规定，分别立案后，与本案合并审理。本案现已审理终结。
本案被诉行政行为：2015年4月9日，三亚市执法局以三亚市优质蔬菜开发中心（以下简称蔬菜中心）、广励智信公司、玉井温泉公司为相对人，作出三综执（崖州）罚决字[2015]Z1-001号处罚决定，责令上述被处罚单位在该决定书送达之日起三日内拆除其所建违法建筑。2015年4月13日，三亚市执法局同样以蔬菜中心、广励智信公司、玉井温泉公司为相对人，作出三综执（崖州）执决字[2015]Z1-011号强制执行决定，决定于2015年4月16日拆除其所建违法建筑。2015年7月7日至7月15日期间，三亚市执法局强制拆除了上述建筑。
原审查明，2014年3月24日，三亚市执法局执法人员巡查发现蔬菜中心未经取得建设工程规划许可证，擅自在三亚市崖城镇（2014年10月，三亚市撤镇设区，崖城镇更名为崖州区）北岭路开发房地产项目，已建设15栋框架结构楼房，具体情况为：9栋六层楼已封顶（其中，3栋结构相同，每栋占地面积为605㎡,建筑面积为3630㎡；6栋结构相同，每栋占地面积为495㎡,建筑面积为2970㎡）；4栋结构相同，已建至十层（每栋占地面积为1386㎡,建筑面积为13860㎡）；2栋结构相同（1栋建至四层，1栋建至五层，占地面积均为872㎡）。遂于当日向蔬菜中心送达了三综执（崖城分局一中队）询字[2014]第047号《接受调查询问通知书》和三综执（崖城分局一中队）停字[2014]第047号《责令停止违法行为通知书》。2014年3月25日、4月1日，三亚市执法局先后向三亚市的供电、供水部门发出函件，要求停止对前述违法建筑供水供电。2014年5月12日，三亚市执法局经调查，就前述建设行为又分别向玉井温泉公司和广励智信公司送达了三综执（崖城分局一中队）询字[2014]第086、087号《接受调查询问通知书》，以两单位存在违规建设行为为由，要求接受调查询问。2014年5月27日，三亚市规划局对三亚市执法局关于征求崖城镇北岭路”三亚市现代农业科教园”规划意见的函件作出复函，称该局未收到”三亚市现代农业科教园”建设项目规划报建申请，也未核发过该项目的《建设工程规划许可证》。2015年2月6日，三亚市执法局发现蔬菜中心、玉井温泉公司及广励智信公司在三亚市××镇，遂对该三家单位作出三综执（崖州）罚告字[2015]Z1-001号《行政处罚告知书》，告知拟处以责令限期拆除上述违法建筑的行政处罚以及三家单位所享有的陈述、申辩和要求举行听证的权利。2015年4月9日，三亚市执法局对蔬菜中心、玉井温泉公司及广励智信公司作出三综执（崖州）罚决字[2015]Z1-001号《行政处罚决定书》，认定该三家被处罚单位崖城镇北岭路”三亚市××园”项目未取得建设工程规划许可证的情况下，违法建设框架结构的房屋17栋，具体状况为：9栋六层封顶，2栋八层封顶，3栋十一层封顶，1栋十层封顶，1栋五层未封顶，1栋四层封顶，总占地面积约14703㎡,总建筑面积约114780㎡。其建设行为违反了《中华人民共和国城乡规划法》第四十条和《海南省城乡规划条例》第三十七条之规定，依据《中华人民共和国城乡规划法》第六十四条和《海南省城乡规划条例》第七十三条之规定，决定责令被处罚单位自该决定书送达之日起三日内拆除上述违法建设房屋。2015年4月13日，因蔬菜中心、玉井温泉公司及广励智信公司逾期未履行拆除义务，三亚市执法局作出三综执（崖州）催字[2015]Z1-001号《强制执行催告书》，催告该三家单位于2015年4月15日24时前履行三综执（崖州）罚决字[2015]Z1-001号《行政处罚决定书》的义务，自行拆除上述违法建筑物；逾期将由该局强制拆除，一切法律后果由该三家单位承担。同日，三亚市执法局又对前述三家单位作出三综执（崖州）执决字[2015]Z1-011号《强制执行决定书》，以该三家单位未于2015年4月15日24时前自行拆除上述违法建筑物为由，根据《中华人民共和国城乡规划法》第六十八条、《海南省城乡规划条例》第七十六条及《中华人民共和国行政强制法》第四十四条之规定，决定于2015年4月16日对上述违法建筑物实施强制拆除。同日，三亚市执法局还对”三亚市现代农业科教园”项目全体业主发出了《关于限期搬迁公告》，以该项目违法建设者拒不履行行政处罚决定，未自行拆除违法建筑，甚至公开对外售卖，其行为违反了相关法律法规的规定，严重扰乱了三亚市房地产市场及经济建设秩序为由，公告如下：限令居住在上述违法建筑物内的全体业主于2015年4月16日前将建筑物内所有物品搬迁完毕并撤离；逾期不搬迁的，由此所造成的一切损失及后果自行承担；阻碍执法人员执行公务的，将依照《中华人民共和国治安管理处罚法》的有关规定执行，构成犯罪的，将追究其刑事责任。2015年4月23日，三亚市执法局组织执法人员强制拆除了前述违法建筑物中的2栋楼房（其中，1栋四层楼，1栋五层楼）。2015年7月7日至15日期间，三亚市执法局又组织执法人员强制拆除了前述违法建筑物中的另外12栋楼房（其中，5栋六层楼，1栋七层楼，2栋八层楼，4栋十层半楼）及小区内的辅助设施和简易房屋，剩余3栋楼房未予拆除。在强制拆除过程中，三亚市执法局对金阳光小区住户未搬离的屋内物品进行了清点、登记及保存。由于需要拆除的建筑面积大、数量多，且小区居民此前多次强烈反对拆迁，为防止阻挠执法或暴力抗拆事件的发生，三亚市政府及三亚市崖州区人民政府、三亚市公安局等相关部门也派出人员在现场维持秩序，确保拆除工作顺利进行。2016年2月23日，王海琛以其位于金阳光小区的房屋被三亚市政府、三亚市执法局违法拆除为由，提起本案诉讼。
原审另查明，2002年8月22日，国务院作出《国务院关于进一步推进相对集中行政处罚权工作的决定》（国发〔2002〕17号），依照行政处罚法的规定，授权省、自治区、直辖市人民政府可以决定在本行政区域内有计划、有步骤地开展相对集中行政处罚权工作。2002年10月11日，国务院办公厅印发《国务院办公厅转发中央编办关于清理整顿行政执法队伍实行综合行政执法试点工作意见的通知》（国办发〔2002〕56号），要求地方各级人民政府抓好综合行政执法试点工作。2004年10月20日，海南省人民政府作出《海南省人民政府关于同意三亚市人民政府开展综合行政执法试点工作的批复》（琼府函〔2004〕91号），同意三亚市政府按照《三亚市综合行政执法试点方案》开展综合行政执法试点工作。2005年12月30日，三亚市政府根据上述国办发〔2002〕56号文和琼府函〔2004〕91号文的精神，作出《三亚市人民政府关于推进综合行政执法试点工作的决定》（三府〔2005〕184号），决定成立三亚市执法局，将三亚市建设、工商、交通等多家部门行使的部分行政处罚、行政强制职能及与之相关的监督检查职能统一转交由该局行使，其中包括城市规划管理的行政处罚及行政强制职能。
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。本案中，认定涉案房屋为违法建筑，决定强制拆除该房屋并在对外发生法律效力的行政处罚决定、强制执行决定及限期搬迁公告等一系列执法文书上署名的行政机关均为三亚市执法局，实际组织并实施强制拆除行为的行政主体亦是三亚市执法局。三亚市政府及三亚市崖州区人民政府、三亚市公安局等相关部门派员在强拆现场维持秩序，其目的在于防止阻挠执法或暴力抗拆的行为发生，并不能据此认定三亚市政府组织并实施了强拆行为。王海琛主张三亚市政府与三亚市执法局共同实施了强制拆除涉案房屋的行为，没有充分的证据予以证明。因此，其对该强制拆除行为不服，应根据《中华人民共和国行政诉讼法》第二十六条第一款的规定，以在对外发生法律效力的文书上署名并实际作出被诉强制拆除行为的行政机关三亚市执法局为被告。三亚市政府并非本案适格被告，王海琛将其列为本案共同被告不当，依法应驳回其对三亚市政府的起诉。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（三）项之规定，裁定：驳回王海琛对三亚市政府的起诉。
上诉人王海琛上诉称，一、有详实资料可以证明，”三亚市现代农业科教园”项目是由当时政府批准授权进行开发建设的。二、该项目得到政府供水、供电、通路支持。开发初期更得到政府出面强制清除原住户等，在多方积极协助下，并收取了多年相应税费才得已建设完成。三、王海琛当时是在三亚副市××组、极力宣传促销下购买的。四、王海琛是向经政府资质认证的正规房产开发商，据有完整合法手续购买的。五、强拆是在政府指令、在市长等一千人亲自坐阵指挥下武装暴力进行的。六、强拆违反了《中华人民共和国行政强制法》第四十三条关于期间不许停水、停电的规定。七、政府选择性执法，强拆时保留三栋。八、违反了《中华人民共和国行政强制法》诉讼期间不许强拆的规定。强拆没经过法律论证，是在业主集体强烈抗议，诉至法院期间暴力进行的。九、强拆违背了《中华人民共和国宪法》”个人私有财产神圣不受侵犯”的规定。综上，请求：1.原址、原样恢复被拆房屋，按当今房屋市场等价等值赔偿；2.赔偿房屋装修、物品、精神等各种损失费用约合60万元。
被上诉人三亚市政府答辩称，认定涉案房屋为违法建筑、决定强制拆除并在对外发生法律效力的行政处罚决定、强制执行决定及限期搬迁公告等一系列执法文书上署名的行政机关均为三亚市执法局，且实际组织强制拆除行为的行政机关亦是三亚市执法局。在拆除过程中，为了防止哄抢、阻挠执法和暴力抗法事件的发生，三亚市政府与相关部门派员在现场维持秩序，并不能因此认定三亚市政府组织实施了强拆行为，以此认定三亚市政府属适格的被告。王海琛之所以在没有法律依据和事实依据的情况下将三亚市政府列为被告，旨在提高审级。对于王海琛这种滥用诉权的行为应予制止。综上，请求：驳回王海琛的上诉，维持原审裁定。
被上诉人三亚市执法局及原审第三人三亚市热科院、玉井温泉公司、广励智信公司未对三亚市政府是否是本案适格被告的问题发表意见。
二审期间当事人没有新证据提交本院。
本院经审理查明的事实与原审认定的事实一致，本院予以确认。
本院认为，本案中，认定涉案房屋为违法建筑、决定强制拆除该房屋，并在对外发生法律效力的《行政处罚决定书》、《强制执行决定书》等一系列执法文书上署名的行政机关为三亚市执法局，实际组织并实施强制拆除行为的行政机关也是三亚市执法局，根据《中华人民共和国行政诉讼法》第二十六条第一款的规定，王海琛对强制拆除其房屋的行政行为不服提起诉讼，应当以作出行政行为的行政机关为被告。王海琛将三亚市政府列为本案共同被告，但不能举证证明三亚市政府与三亚市执法局共同实施了涉案强拆行为。有关媒体关于三亚市政府相关领导在拆除现场值守的报道，不足以证明三亚市政府参与并指挥了本案强拆行为。因此，三亚市政府并非本案适格被告，原审裁定驳回王海琛对三亚市政府的起诉并无不当，应予维持。王海琛的上诉理由不能成立，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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审判长吴天月
审判员聂海波
审判员陈焱
法官助理皮小慢
书记员梁棚
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