海南省高级人民法院
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（2017）琼行赔终27号
海南省高级人民法院
行政赔偿判决书
（2017）琼行赔终27号
上诉人（原审原告）赵英头，女，1965年7月17日出生，汉族，住昌江黎族自治县。
委托代理人梁如秀，海南林源律师事务所律师。
被上诉人（原审被告）昌江黎族自治县人民政府，住所地昌江黎族自治县石碌镇昌江大道。
法定代表人林安，县长。
被上诉人（原审被告）昌江黎族自治县国土资源局，住所地昌江黎族自治县石碌镇人民北路169号。
法定代表人李锋，局长。
被上诉人（原审被告）昌江黎族自治县住房和城乡建设局，住所地昌江黎族自治县石碌镇东风路。
法定代表人林英俊，局长。
被上诉人（原审被告）昌江黎族自治县石碌镇人民政府。住所地昌江黎族自治县石碌镇人民北路***号。
法定代表人符明，镇长。
上列四被上诉人的共同委托代理人符旭，昌江黎族自治县城乡管理综合执法局科员。
上列四被上诉人的共同委托代理人周正凡，海南天赐律师事务所律师。
上诉人赵英头因其诉被上诉人昌江黎族自治县人民政府、昌江黎族自治县国土资源局、昌江黎族自治县住房和城乡建设局、昌江黎族自治县石碌镇人民政府（以下分别简称昌江县政府、昌江县国土局、昌江县住建局、石碌镇政府或统称昌江县政府等四单位）行政赔偿一案，不服海南省第二中级人民法院(2016)琼97行赔初22号行政赔偿判决，向本院提起上诉。本院受理后，依法组成合议庭，对本案进行了审理，现已审理终结。
原审查明，自2001年起，赵英头在××县橡胶林）修建了三间面积为294.1平方米的砖混结构平顶房、两间面积为35.52平方米的简易瓦房和两间面积为85.15平方米的简易棚。2005年7月1日，海南省国营红林农场（以下简称红林农场）与赵英头签订《承包土地书》，将位于红林农场7队的5亩土地发包给赵英头，承包期限为10年，并约定”承包的土地所有权属于国家，乙方只有土地使用权，不得买卖、出租、改变土地使用性质，不准转作宅基地和构筑其他建筑物”。赵英头修建的房屋在其所承包的土地范围内，所承包的土地属于国有农用地，赵英头修建上述房屋时未取得城乡规划主管部门颁发的建设工程规划许可证。2016年3月23日，石碌镇政府、昌江县住建局、昌江县国土局组成联合调查组，对赵英头修建上述建筑物的行为进行调查。2016年4月25日，石碌镇政府、昌江县住建局和昌江县国土局联合对赵英头作出《行政处罚事先告知书》，拟对赵英头作出限期拆除擅自建设的违法建筑物的行政处罚，告知赵英头有陈述申辩和申请听证的权利。2016年5月12日，石碌镇政府、昌江县住建局和昌江县国土局联合对赵英头作出《行政处罚决定书》，限赵英头在该决定书下达之日起七日内自行拆除其擅自建设的违法建筑物。2016年5月23日，赵英头向昌江黎族自治县人民法院提起行政诉讼，诉请撤销上述《行政处罚决定书》。2016年6月16日，石碌镇政府向昌江县政府提交《石碌镇人民政府关于依法拆除木棉苑小区北侧（红林农场七队橡胶林）十六户人违法建筑的请示》。2016年7月12日，昌江县政府作出《昌江黎族自治县人民政府关于同意依法拆除木棉苑小区北侧（红林农场七队橡胶林）违法建筑的批复》，同意由石碌镇政府、昌江县住建局和昌江县国土局作为实施主体，昌江县城乡管理综合执法局、昌江县公安局等相关部门配合，依法对包括赵英头在内的16户在木棉苑小区北侧（红林农场七队橡胶林）擅自建设的违法建筑实施强制拆除。该批复附有《昌江黎族自治县依法强制拆除木棉苑小区北侧（红林农场七队橡胶林）十六户违法建筑工作方案》。2016年7月15日，石碌镇政府、昌江县住建局和昌江县国土局联合向赵英头发出《履行行政处罚决定催告书》，限赵英头在接到该催告书之日起3日内自行拆除所建违法建筑物。同日，石碌镇政府、昌江县住建局和昌江县国土局联合作出《关于责令赵英头拆除违法建筑的公告》并进行张贴。2016年7月22日，石碌镇政府、昌江县住建局和昌江县国土局联合向赵英头发出《关于强制拆除赵英头违法建筑决定的通知》，决定于2016年7月28日对赵英头的违法建筑进行强制拆除。同日，石碌镇政府、昌江县住建局和昌江县国土局联合作出《关于强制拆除赵英头违法建筑决定的公告》并进行张贴。2016年7月28日，赵英头修建的上述建筑物被强制拆除。赵英头遂提起本案诉讼，请求：一、判令昌江县政府等四单位连带赔偿赵英头因强制拆除造成建筑物的经济损失1112958元（以鉴定评估为准）；二、判令昌江县政府等四单位连带赔偿赵英头因强制拆除造成的律师服务费4500元和搬家费3000元。
原审另查明，在实施强制拆除行为前，石碌镇政府委托相关评估机构对赵英头修建的房屋及附着物的价值进行了评估。
原审再查明，赵英头在提起本案行政赔偿诉讼的同时，对昌江县政府等四单位于2016年7月28日强制拆除其建筑物的行政行为一并提起了行政诉讼，请求依法确认强制拆除行为违法。原审法院于2016年7月28日作出（2016）琼97行初191号行政判决，确认上述强制拆除行为违法。
原审认为，根据《中华人民共和国国家赔偿法》第二条、第四条第（四）项和《最高人民法院关于审理行政赔偿案件若干问题的规定》第一条的规定，违法行政行为给公民、法人或者其他组织的合法权益造成损害的，受害人有取得赔偿的权利。从上述规定可知，受害人取得赔偿的条件有两个：一是有关行政行为被确认违法或被撤销；二是被确认违法或被撤销的行政行为给公民、法人或者其他组织的合法权益造成了损害。本案中，赵英头主张行政赔偿系因其认为昌江县政府等四单位强制拆除其建筑物的行政行为违法，对其财产造成了损害。虽然原审作出的（2016）琼97行初191号行政判决确认了强制拆除行为违法，但根据《中华人民共和国土地管理法》第四十四条第一款”建设占用土地，涉及农用地转为建设用地的，应当办理农用地转用审批手续”和《海南省城乡规划条例》第三十七条”在城市和县、自治县人民政府所在地镇、特定地区规划区内新建、扩建和改建建筑物、构筑物、道路、管线和其他工程设施的，建设单位或者个人应当向市、县、自治县人民政府城乡规划主管部门申请办理建设工程规划许可证。在其他镇规划区（不含特定地区）内新建、扩建和改建建筑物、构筑物、道路、管线和其他工程设施的，建设单位或者个人应当向市、县、自治县人民政府城乡规划主管部门或者省人民政府确定的镇人民政府申请办理建设工程规划许可证”的规定，由于赵英头被强制拆除的建筑物所占用的土地属于国有农用地，其在修建本案被强制拆除的建筑物时既未办理农用地转为建设用地审批手续，又未向城乡规划主管部门申请办理建设工程规划许可证，而昌江县住建局、昌江县国土局和石碌镇政府在对赵英头修建的建筑物进行强制拆除时就已经将其认定为违法建筑，故昌江县政府等四单位拆除该违法建筑给赵英头造成的损失显然不属于受法律保护的合法权益。因此，赵英头在本案中提出的赔偿请求没有事实或法律根据，对其赔偿请求依法应予驳回。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》第三十三条的规定，判决驳回赵英头的赔偿请求。
赵英头上诉称，一、赵英头自筹资金建设涉案建筑物是对土地进行农业综合开发，是为了更好管理橡胶、种植农作物和发展农业综合体，亦经国营红林农场批准同意，当地政府和农场从未对此提出异议。由此可见，赵英头的建筑物不属于违法建设，也未改变土地性质，无须办理农用地转用审批手续。二、赵英头的建筑物是其用自己合法财产所建的生产设施，并非住宅建设，亦非违法建筑物，理应受法律保护。三、赵英头所建的建筑物并不违反城乡规划。石碌镇政府、昌江县住建局在诉讼中提供的《昌江黎族自治县城乡整体规划》的适用时间是2012年到2030年，而赵英头所建的建筑物早在2005年就已经建好，建筑物所在地不在昌江县政府的城乡规划范围内，无须申请办理建设工程规划许可证。四、赵英头建造建筑物的历史原因是为响应海南省农垦总局发展农场自营经济的号召，个人不存在任何过错和构成土地侵权。综上，赵英头所建的建筑物是合法建筑，其损失理应与吉定光和赵诗金两个被强拆对象一样按评估价得到赔偿，请求：1.撤销原审判决；2.改判支持赵英头原审的诉讼请求。
昌江县政府等四单位共同答辩称，赵英头的涉案建筑物为违法建设，昌江县政府等四单位予以强制拆除，符合法律规定。
本院二审查明的事实与原审认定的事实一致。本院另查明，就赵英头诉请撤销石碌镇政府、昌江县住建局和昌江县国土局作出的《行政处罚决定书》一案，昌江黎族自治县人民法院于2016年9月26日作出（2016）琼9026行初19号行政判决驳回赵英头的诉讼请求。在赵英头不服提起上诉后，原审法院于2017年6月28日作出（2017）琼97行终36号行政判决驳回了该上诉。另外，就本案所涉强制拆除行为违法之诉，在原审法院作出（2016）琼97行初191号行政判决确认该行政行为违法之后，本院二审作出（2017）琼行终897号行政判决，驳回赵英头的上诉，维持原判。
本院认为，本案系赵英头以昌江县政府等四单位为共同被告一并提起的请求依法给予行政赔偿之诉。赵英头提起的确认本案行政赔偿所涉强制拆除其建筑物行政行为违法的诉讼，在原审法院作出（2016）琼97行初191号行政判决确认该行政行为违法后，又被本院二审所作出的（2017）琼行终897号行政判决予以维持。依据《中华人民共和国国家赔偿法》第二、第三、第四条的规定，行政机关违法行使职权造成当事人合法权益受到损害的，虽然受害人享有获得国家赔偿的权利，但是同时根据上述规定，国家赔偿保护的是行政相对人的合法权益，亦即受害人得到国家赔偿的前提是其受损权益为合法权益。因此，赵英头能否得到国家赔偿的关键是其本案被拆建筑物是合法建筑还是违法建筑。根据本案二审查明事实，昌江县住建局、昌江县国土局和石碌镇政府联合作出《行政处罚决定书》认定涉案建筑物为违法建筑并要求赵英头限期拆除，在赵英头不服提起诉讼后，经昌江黎族自治县人民法院一审和原审法院二审审查，该《行政处罚决定书》的效力得到了司法确认。即涉案建筑物属违法建筑已得到了司法确认，其被强制拆除，虽拆除行为违法，但并未损害赵英头的合法权益，故原审法院依据《最高人民法院关于审理行政赔偿案件若干问题的规定》第三十三条的规定驳回赵英头的赔偿请求，并无不当。综上，原审判决认定基本事实清楚，适用法律正确，案件处理结果亦无不当。赵英头的上诉请求和理由不成立，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，判决如下：
驳回上诉，维持原判。
本判决为终审判决。
审判长黄胜敏
审判员郑怀全
审判员麻红丽
二○一七年十一月二十二日
法官助理皮小慢
书记员梁棚
书记员梁棚
附：本判决适用的相关法律依据
《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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