海南省高级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼行终1691号
海南省高级人民法院
行政判决书
（2017）琼行终1691号
上诉人（原审原告）苏石阳，男，1963年12月15日出生，黎族，现住三亚市。
委托代理人罗于贤，三亚市天涯法律事务所主任。
委托代理人苏志攀，男，1987年5月20日出生，黎族，现住三亚市,系上诉人之子。
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，市长。
委托代理人周丽，三亚市人民政府法制办公室工作人员。
上诉人苏石阳因其诉被上诉人三亚市人民政府（以下简称三亚市政府）土地征收补偿一案，不服海南省三亚市中级人民法院（2017）琼02行初24号行政判决，向本院提起上诉。本院依法组成合议庭，于2017年12月7日公开开庭审理了本案。上诉人苏石阳及其委托代理人罗于贤、苏志攀，被上诉人的委托代理人周丽到庭参加诉讼。本案现已审理终结。
2008年10月，因国防1801工程建设需要，三亚市政府征收三亚市吉阳区六道村民委员会（以下简称六道村委会）区域集体土地，涉案鲍鱼池用地在该征收范围内。苏石阳主张三亚市政府对涉案鲍鱼池应按照鲍鱼生物体予以补偿未果，遂提起本案行政诉讼，请求三亚市政府支付其鲍鱼生物体补偿款809645.84元。
原审查明，一、2008年10月，因国防1801项目建设需要，三亚市政府拟征收六道村委会全部集体土地和安罗村委会部分集体土地以及收回部分国有土地作为该项目建设用地，并安排原三亚市吉阳镇人民政府（以下简称吉阳镇政府）组织人员对征地范围内土地权属进行调查，并清点青苗及地上附着物，丈量土地面积等。苏石阳系六道村委会内二村民小组村民，涉案鲍鱼池用地在该征收范围内。2008年10月至2012年8月期间，由吉阳镇政府、六道村委会以及内二村民小组等组成的征地工作组多次对苏石阳被征土地上的青苗及地上附着物进行清点，并制作了《青苗补偿登记表》《地上附着物补偿登记表》。苏石阳在上述登记表上签名确认清点结果。其中，2008年10月22日制作的《青苗补偿登记表》记载：鲍鱼苗红砖砌池为长17.2米、宽8米、高1.9米；红砖鲍鱼池长9米、宽2.4米、高1.15米；鲍鱼苗池长12.5米、宽9.4米、高1.8米及长25.2米、宽5.7米、高1.8米，但没有关于鲍鱼池生物水体的任何记载，该登记表备注栏也为空。2011年9月8日，三亚市政府办公室对吉阳镇政府等单位作出《三亚市人民政府办公室关于1801项目用地征收土地调查有关问题的通知》，告知三亚市政府拟征收土地的范围、用途以及吉阳镇政府所负责的工作事项等。2012年9月25日，苏石阳就除鲍鱼池之外的其余青苗及地上附着物等补偿问题与相关部门签订《征地拆迁房屋补偿协议书》，约定补偿苏石阳共计523473.87元，苏石阳已领取该补偿款。2015年1月2日，三亚市撤镇设区，原吉阳镇政府的职权由吉阳区人民政府（以下简称吉阳区政府）行使。就该鲍鱼池的补偿问题，吉阳区政府提出以三府[2013]43号文（以下简称43号文）所规定的补偿标准，按每平方米20元进行补偿，苏石阳认为该补偿标准过低，双方未能达成一致意见。2017年1月20日，苏石阳以三亚市政府、吉阳区政府为共同被告提起行政诉讼，要求三亚市政府就其鲍鱼池水体756.332立方米，按三府办[2011]175号文（以下简称175号文）所规定的1070.49元/m3的标准补偿其809645.84元，吉阳区政府承担连带赔偿责任。二、庭审中，苏石阳称其于1998年开始养殖鲍鱼，鲍鱼池被征收时，池内有鲍鱼生物体，但未能提供任何证据予以证明。苏石阳亦认可其养殖鲍鱼未取得相关部门核发的任何证照。三、原审另查明，2011年6月13日，三亚市政府办公室向各镇政府、各区管委会、市政府各有关单位发出《关于印发三亚市鲍鱼养殖场拆迁生物补偿标准的通知》（三府办[2011]175号），该标准第四条规定，三亚市鲍鱼养殖场拆迁的生物补偿标准为1070.49元/m3。2013年3月25日，三亚市政府向各镇政府、各区管委会、市政府直属各单位发出《关于印发〈三亚市集体土地征收补偿安置管理规定（2013年修订）〉的通知》（三府[2013]43号），该规定附件9《常见淡水、海水养殖生物补偿标准表》（以下简称43号文附件9）规定，鲍鱼养殖池（塘）结构为池深1.3-1.7米，池体厚24厘米的，生物体补偿标准按175号文1070.49元/m3执行，其建筑物及附着物按附表5、附表6执行。四、原审审理过程中，苏石阳申请向中国人民解放军92304部队调取其是否将本案全部土地补偿款支付给三亚市政府以及三亚市政府向部队报送的苏石阳鲍鱼水体体积、支付补偿款数额的证据，该部队征地负责人答复已将项目土地补偿款支付给三亚市政府，但从已补偿名单中未显示有关苏石阳鲍鱼水体的补偿情况。五、原审法院以吉阳区政府不是本案适格被告为由，另行作出（2017）琼02行初23号行政裁定，驳回苏石阳对吉阳区政府的起诉。
原审认为，根据《最高人民法院关于执行〈中华人民共和国行政诉讼法〉若干问题的解释》第二十七条第（三）项、《最高人民法院关于行政诉讼证据若干问题的规定》第五条以及《最高人民法院关于审理行政赔偿案件若干问题的规定》第三十二条的规定，苏石阳应当对其主张承担举证责任。本案中，苏石阳认为征地工作组在清点登记其鲍鱼池时，未在《青苗补偿登记表》的”备注”栏中注明池内是否具有生物体，加之其于1998年就开始养殖鲍鱼的事实，应当认定其鲍鱼池内具有生物体，并按175号文关于生物体补偿为1070.49元/m3的标准给予其补偿。经查，2008年10月22日，征地工作组对苏石阳被征土地上的附着物进行清点、登记时，对其鲍鱼池规格、数量均作了记载，并制作了《青苗补偿登记表》，苏石阳对该清点结果无异议，且在登记表上签字确认。由于该登记表中并无有关鲍鱼生物体的任何记载，且苏石阳亦不能举证证明其所建鲍鱼池在被征收时已具备正常养殖的条件，可以认定该《青苗补偿登记表》所登记的内容仅是鲍鱼池设施本身而非鲍鱼池生物体的情况，而苏石阳所主张的1070.49元/m3的补偿标准是针对池深1.3-1.7米、池体厚24厘米的鲍鱼养殖池内生物体的补偿标准，并非针对鲍鱼池设施本身的补偿标准，因此，苏石阳诉求对其鲍鱼池按1070.49元/m3的标准进行补偿没有事实根据和法律依据，不予支持。为有效解决争议，三亚市政府应当采取有效措施，依法定程序对苏石阳的鲍鱼池作出相应的补偿，以保护苏石阳的合法权益。综上，苏石阳的诉讼请求依据不足，依法应予驳回。依照《最高人民法院关于执行<中华人民共和国行政诉讼法>若干问题的解释》第五十六条第（四）项之规定，判决：驳回苏石阳的诉讼请求。案件受理费50元，由苏石阳负担。
上诉人苏石阳上诉称，一、原审判决认定事实错误。《青苗补偿登记表》登记为”鲍鱼养殖池”、备注栏未注明”无生物水体”而显示空白，可证明表上”鲍鱼养殖池”包含鲍鱼生物体。根据43号文附件9的说明，养殖池的登记，除登记池的容积要素单位外，还应标明墙体材料、厚度，而该登记表中并无上述要素反映，因此，”鲍鱼池”不仅仅只是建筑物。二、原审判决认定苏石阳未提供任何证据证明其养殖鲍鱼与事实相悖。《青苗补偿登记表》关于水池、铁水管、混凝土堤坝等用于养殖鲍鱼的设施设备的记载均能证明苏石阳养殖了鲍鱼。三、根据政府文件规定，非正常养殖才需要核发证照，苏石阳属于正常养殖不需要核发证照。并且是否补偿与是否养殖鲍鱼有关，与有无证照无关。四、《青苗补偿登记表》经三亚市政府、部队、村委会和苏石阳共同确认，是补偿的唯一依据，三亚市政府单方反悔没有事实根据和法律依据。五、三亚市政府违反法定程序，未进行补偿就强制搬迁，造成部分证据灭失，应承担不利后果。综上，请求撤销原判，支持苏石阳的诉讼请求。
被上诉人三亚市政府答辩称，一、涉案《青苗补偿登记表》只记载了池体的规格和数量，没有任何关于鲍鱼生物水体的记载，表中平均产值和备注栏均为空。苏石阳将《青苗补偿登记表》中关于鲍鱼池规格的记录作为要求鲍鱼生物体补偿的依据，属于故意曲解补偿登记的内容。二、43号文附件9规定的正常养殖必须是连续三年养殖。鲍鱼养殖户的经营损失补偿不同于一般的地上附着物补偿，另有一套严格、完备的评估、核查和补偿的标准和程序。苏石阳没有提供任何证据证明其所建的鲍鱼池在被征收时符合正常养殖的条件。综上，请求驳回上诉，维持原判。
在本院审理过程中，三亚市政府向本院提交三府函[2010]368号批复，证明涉案鲍鱼池没有达到正常养殖条件。本院认为，三亚市政府在一审程序中无正当理由未提供而在二审程序中提供该证据，本院依法不予接纳。
本院二审查明，一、43号文附件9记载：该补偿标准是该类养殖池（塘）的综合补偿费，包括养殖池的开发建设、池周围排灌水系统及供电设备、养殖工作台、土方、护坡以及打氧设备、养殖笼等基本建设费用；上述补偿应达到正常养殖标准，正常养殖综合补偿标准必须是连续三年养殖，达不到三年者，须经行业主管部门批准，各类手续齐全；闲置或大部闲置的养殖池，只按附着物给予补偿。二、175号文记载：本补偿标准包含有经营性补偿的含义；持有鲍鱼养殖项目立项、鲍鱼养殖许可证、鲍鱼鱼苗生产许可证、建设鲍鱼养殖场的批复、鲍鱼养殖生产备案手续等任何一种手续的养殖场，按一般性标准全额补偿，没有上述手续的，按用电量修正补偿标准。
本院二审查明的其他事实与原审判决认定的事实一致。
本院认为，根据本案查明的事实，经苏石阳签字确认的《青苗补偿登记表》仅注明了涉案鲍鱼池池体自身的规格，并无关于鲍鱼生物体的记载，苏石阳认为该表备注栏没有注明无鲍鱼生物体即可认定为有鲍鱼生物体，缺乏事实根据。43号文附件9所确定的补偿标准是”综合补偿费”，175号文所进行的补偿”有经营性补偿的含义”，二者都要求养殖户除建设养殖池之外，还必须达到适合鲍鱼养殖的条件，能够正常生产经营。而在本案中，苏石阳没有提供证据证明涉案鲍鱼池在征收补偿登记时达到正常养殖标准、已经处于并能够持续处于实际生产经营的状态。此外，43号文附件9要求达不到三年者，须经行业主管部门批准，短期养殖要求办理合法手续，据此不能得出长期养殖则不需办理手续的结论。与43号文附件9规定相一致，175号文也要求进行鲍鱼生物体补偿，应当提供合法养殖手续或者用电量证明，而苏石阳亦不能提供相关证据。故根据现有证据，苏石阳要求三亚市政府依照175号文规定的补偿标准支付其鲍鱼生物体补偿款的诉讼请求，缺乏事实根据和法律依据。三亚市政府应按照175号文、43号文的有关规定就征收涉案鲍鱼池依法予以补偿。
综上，原审判决认定事实清楚，适用法律正确，处理结果并无不当，应予维持。苏石阳的上诉请求和理由不能成立，应予驳回。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，判决如下：
驳回上诉，维持原判。
二审案件受理费50元，由上诉人苏石阳负担。
本判决为终审判决。
审判长聂海波
审判员王华
审判员刘利红
书记员井泉旺
附：相关法律条文：
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