海南省高级人民法院
p t ; ” > 行 政 赔 偿 裁 定 书
(2017)琼行赔终131号
海南省高级人民法院
行政赔偿裁定书
(2017)琼行赔终131号
上诉人（原审原告）印菊珍，女，1950年9月3日出生，汉族，住所地湖南省桃源县。
委托代理人涂海涛，北京市法大律师事务所律师。
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。
委托代理人林祖才，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。
上诉人印菊珍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）行政强制拆除赔偿一案，不服海南省三亚市中级人民法院（2016）琼02行赔初42号行政赔偿裁定，向本院提起上诉。本院依法组成合议庭，于2017年10月27日公开开庭审理了本案。因印菊珍在提起本案赔偿诉讼的同时，还与文菊梅等54人共同对三亚市政府、三亚市执法局强制拆除其房屋的行政行为提起了行政诉讼，且本案与同期受理的文菊梅等人分别诉三亚市执法局及第三人三亚市热科院、玉井温泉公司、广励智信公司行政赔偿纠纷53案的诉讼请求、事实与理由相类同，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，与本案一并审理。上诉人的委托代理人涂海涛，被上诉人三亚市政府委托代理人郑大平、三亚市执法局委托代理人林祖才到庭参加诉讼。原审第三人三亚市热科院、广励智信公司经本院合法传唤，无正当理由拒不到庭参加诉讼。三亚玉井温泉公司法定代表人张娟因涉嫌刑事案件被羁押未到庭参加诉讼,亦未委托诉讼代理人参加诉讼。本案现已审理终结。
原审查明，2014年3月24日，三亚市执法局执法人员巡查发现，三亚市优质蔬菜开发中心（以下简称蔬菜中心）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㎡）。当日，三亚市执法局向蔬菜中心送达三综执（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、供水部门发函，要求停止对前述违法建筑项目供水供电。2014年5月12日，三亚市执法局分别向玉井温泉公司和广励智信公司送达三综执（崖城分局一中队）询字[2014]第086号、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，就三亚市执法局关于上述建设项目（”三亚市现代农业科教园”）征询规划许可意见的函，三亚市规划局复函称该局未收到”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该项目擅自建设的房屋已达到16栋，遂向该三单位作出三综执（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在未取得建设工程规划许可证的情况下，违法建设”三亚市现代农业科教园”项目房屋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《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，并公开对外售卖，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另外的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的事件发生，三亚市政府及三亚市崖州区人民政府、市公安局等相关部门派出人员在现场维持秩序，确保拆除工作顺利进行。
印菊珍对此次强拆行为不服，与文菊梅等54人以三亚市政府、三亚市执法局为被告于2016年1月5日向三亚市中级人民法院提起行政诉讼，要求确认三亚市政府、三亚市执法局强制拆除其在金阳光小区房屋的行政行为违法。经审理，三亚市中级人民法院已另案作出（2016）琼02行初177号行政裁定和（2016）琼02行初177号行政判决，裁定驳回印菊珍等55人对三亚市政府的起诉；判决驳回印菊珍等55人的诉讼请求。
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。印菊珍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，印菊珍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：驳回印菊珍对三亚市政府的起诉。
上诉人印菊珍上诉称，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、上诉人购买的房屋位于三亚市政府批准实施的控制性详细规划的A-09、A-13二类合法居住用地范围。三、上诉人被强拆的房屋购买自三亚市政府在全国各地的推介房展销会，取得方式、来源合法。四、三亚市政府未经法定程序，废止依法生效的由山西省规划设计院设计编制的三亚现代农业科教园项目的《控制性详细规划》，涉嫌违法。五、根据《城乡规划法》第六十八条的规定，只有三亚市政府有权对金阳光温泉花园小区房屋作出强制拆除决定。六、三亚市政府不仅责成其下属行政单位三亚市执法局实施强拆，还组织、调动了公安、武警部队等共同实施强拆。综上，三亚市政府是涉案强拆行为的决定机关，是本案适格被告。请求撤销原审裁定，依法改判。
被上诉人三亚市政府答辩称，一、印菊珍不是本案适格原告。海南仲裁委的生效仲裁裁决对案外人蒋某与广励智信公司签订的《房产交易合同》认定为无效合同，上诉人与广励智信公司签订的《房产交易合同》与上述合同基本一致，亦可以认定为无效合同。上诉人并未取得涉案房屋的所有权，本案强制拆除行为的相对人并非上诉人，其没有权利对此提起诉讼。二、三亚市政府不是本案适格被告。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。上诉人没有证据证明三亚市政府实施了上述行政行为，错误地将三亚市政府列为被告。案外人王某曾就本案涉案行政行为，将三亚市政府列为被告提起诉讼并上诉至海南省高级人民法院，海南省高级人民法院经审理作出了（2017）琼行终442号行政裁定，认定了三亚市政府不是适格被告的事实。因此，原审裁定正确，请求驳回印菊珍的上诉，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属于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，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。上诉人将三亚市政府列为本案共同被告缺乏事实根据和法律依据。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，以及其他部门派员在现场维持秩序的事实，不足以证明三亚市政府参与、实施了本案强拆行为。因此，三亚市政府并非本案适格被告，原审裁定驳回上诉人对三亚市政府的起诉并无不当，应予维持。上诉人的上诉理由缺乏事实根据和法律依据，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。
审判长朱望锋
审判员王华
审判员吴天月
审判员麻红丽
审判员陈焱
书记员陈欣欣
附：本裁定适用的相关法律依据
《中华人民共和国行政诉讼法》
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