海南省高级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼行赔终40号
海南省高级人民法院
行政判决书
(2017)琼行赔终40号
上诉人（原审原告）陈启流，女，1964年3月14日出生，汉族，现住三亚市。
委托代理人孙臣，广东财富东方律师事务所律师。
被上诉人（原审被告）三亚市崖州区人民政府，住所地三亚市崖州区水南大道。
法定代表人冯强，区长。
委托代理人麦少华，三亚市崖州区法制办公室工作人员。
上诉人陈启流因诉被上诉人三亚市崖州区人民政府（以下简称崖州区政府）行政赔偿一案，不服三亚市中级人民法院（2017）琼02行赔初5号，向本院提起上诉。本院依法组成合议庭，对本案进行了公开审理。因陈启流另案提起行政诉讼的同时，一并提起本案行政赔偿诉讼。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，两案合并审理。本案现已审理终结。
原审查明，1995年，陈启流与其兄长陈德玉共同承包了原三亚市崖城镇乾隆村委会村民黎福桃、李伍顺、周春才等人5亩土地，后陈启流得其中1.68亩土地用于种植芒果、槟榔等经济作物。2011年5月19日和2012年6月28日，三亚市人民政府办公室先后分别向原崖城镇人民政府及市政府有关单位下发三府办〔2011〕146号《关于崖州中心渔港疏港大道建设项目用地土地调查有关问题的通知》和三府办〔2012〕188号《关于三亚市崖州中心渔港疏港大道建设项目部分补征用土地调查有关问题的通知》，拟征收原崖城镇港门村委会、乾隆村委会、港一村委会和港二村委会部分集体土地及拟收回原崖城镇辖区内单位的部分国有土地作为三亚市崖州中心渔港疏港大道建设项目用地，用地面积约合187.16亩。通知规定由崖城镇政府负责组织实施项目用地上的清点青苗、土地丈量、土地面积和地上附着物补偿审核及补偿工作。陈启流承包的的位××镇的1.68亩土地在被征收土地范围内。2011年4月22日，崖城镇政府工作人员对陈启流承包的1.68亩土地的青苗及附着物进行丈量、清点，清点结果为：高4.1米以上已结果的槟榔树240株，高2.1至3米生长期的槟榔树393株，高1.1至2米生长期的槟榔树678株，高0.3米以下槟榔幼苗17018株，高0.3米嫁接芒果幼苗1624株，铁皮棚两间面积共计20.8平方米。鉴于崖州中心渔港项目征地工作中存在农民抢种及超密度种植的情况，崖城镇政府认为陈启流1.68亩土地上种植19953株青苗超过正常种植的近百倍，属非正常种植，不符合三亚市人民政府的相关补偿要求，故双方一直未达成补偿协议。2012年8月30日，三亚市海洋与渔业局、崖城镇政府就整个中心渔港村民抢种、抢建极其严重的情况召开专题会议，形成《研究崖州中心渔港项目超密度种植青苗及高位虾塘的拆迁补偿实施办法》会议纪要，根据该纪要”征地通知发布时原已多年种植的果园中增加套种青苗的补偿按原种植青苗（成树）和套种青苗两类分别补偿......两类补偿累计单价不得超过8万元/亩”的标准，双方仍未达成补偿协议。2013年6月21日，崖城镇政府向陈启流下达《通知》，告知陈启流为确保修建崖州中心渔港疏港大道工程建设的顺利进行及保护陈启流的合法权益，镇政府决定于2013年6月21日9时会同三亚市公证处一起到陈启流所承包的上述土地上其种植的青苗及附着物进行丈量、清点公证证据保全，并通知陈启流准时到达现场。2013年7月15日三亚市公证处出具（2013）三证内字第8232号《公证书》，载明：2013年6月21日到场的三亚市公证处公证员、崖城镇政府及崖州中心渔港项目组工作人员对陈启流承包地现场清点的结果为：4米已结果槟榔树97株，3米已结果槟榔树64株，2米已结果槟榔树102株，2米生长期槟榔树316株，0.4-0.9米槟榔幼苗519株；铁皮顶凉棚高2.4米，面积为4.5米×4.5米及简易凉棚高1.8米，面积为4.1米×2米。同时，三亚市公证处的公证员对该承包地的现状进行丈量、清点、拍照录像和证据保全。2013年8月7日，原三亚市崖城镇中心渔港征地办公室向陈启流下达《拆迁通知书》，要求陈启流顾全大局自行清除承包地上的青苗及附着物。同年8月23日，崖城镇政府对上述青苗及附着物进行了强制清除。2014年4月24日，就陈启流向三亚市信访局反映其承包地青苗及简易房屋被清除，陈启流坚持按2011年4月22日的清点数目补偿或赔偿28万元的要求，崖城镇政府信访调处中心复函三亚市信访局，认为陈启流承包地上19920株槟榔树（幼苗）及芽接芒果苗是临时抢种及套种，属非正常种植，按三府〔2013〕43号文件的标准应不予补偿。崖州区政府将依据2012年8月31日会议纪要要求，按每亩8万元的标准对陈启流所种青苗进行补偿，铁皮顶棚等附着物依法另行补偿。2016年11月2日，崖州区政府就陈启流青苗及附着物补偿问题与陈启流达成一致，崖州区政府制作了《国家建设征地拆迁补偿表》《报销支付凭证》等补偿统计资料，明确了陈启流被征收土地青苗及附着物的规格及崖州区政府应支付的补偿款金额为195000元。陈启流对前述补偿统计资料所登记的被征收青苗及附着物的株数、规格、补偿单价及金额均签名予以认可。之后，陈启流领取了前述全部款项。
原审另查明，陈启流在庭审中明确表示，其于2011年知道三亚市政府欲征收其承包的高新必园土地修建崖州中心渔港疏港大道，其同意征收，对三亚市人民政府所确定的征收补偿标准也没有异议，但认为崖州区政府不应当在双方未签订补偿协议的情况下就强制清除其承包地上的青苗及附着物。2017年3月10日，陈启流以崖州区政府未对其履行全部赔偿义务为由，提起本案诉讼，要求崖州区政府赔偿其剩余青苗及附着物补偿款共计人民币158080元。
原审认为，《中华人民共和国土地管理法》第二条第四款规定，国家为了公共利益的需要，可以依法对土地实行征收或者征用并给予补偿。本案中，崖州区政府为加快三亚市崖州中心渔港建设，根据三府办〔2011〕146号及三府办〔2012〕188号文件精神，需实施征收陈启流所承包的高新必园1.68亩土地修建崖州中心渔港疏港大道，崖州区政府在具体实施征收该项目用地的过程中，围绕征地做了大量宣传工作并发布通告，指派崖州区政府及崖州中心渔港项目组等相关部门的工作人员对陈启流被征收的涉案土地上的青苗及附着物进行清点、丈量和登记，并先后制作了《国家建设征地拆迁补偿表》《报销支付凭证》等补偿统计资料，陈启流对征收人员在前述补偿统计资料中所登记青苗及附着物的株数、规格、补偿单价及金额均签名予以认可后，领取了全部款项。前述事实表明，原告陈启流在征收过程中，对其青苗及附着物的征收补偿标准是清楚且同意的，其随后领取补偿款的行为也进一步印证其对政府的征收行为是没有异议的。因此，崖州区政府征收陈启流涉案土地青苗及附着物的行政行为没有违反《海南经济特区土地管理条例》第二十八条的相关规定。陈启流主张崖州区政府尚未支付全部青苗及地上附着物的补偿款。经查，陈启流在庭审中自认在2011年就知晓该涉案承包地欲被征收，其并无异议，崖州区政府相关工作人员虽然在2011年11月2日对陈启流承包地上的青苗及附着物进行了清点，但从清点的结果和当时整个中心渔港村民抢种、套种、抢建现象严重的情况来看，陈启流在涉案1.68亩土地所种植的槟榔树及芒果幼苗达19953株，可以认定其种植槟榔树及芒果幼苗属超密度非正常种植，崖州区政府在与其多次协商未果后，为保证中心渔港疏港大道工程建设的顺利推进，在告知其自行清除未果的情况下，于2013年6月21日在三亚市公证处公证员的公证下，对其承包地上的青苗及附着物进行丈量、清点、录像提存和证据保全后，于2013年8月23日进行了强制清除。陈启流在同意与崖州区政府签订《国家建设征地拆迁补偿表》并领取全部补偿款后，又反悔主张崖州区政府尚未支付全部补偿款，要求崖州区政府赔偿其剩余青苗及附着物的损失158080元，没有充分的事实根据和法律依据，该院依法不予支持。综上所述，陈启流的赔偿请求依据不足，依法应予驳回。该院遂依照《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》第三十三条之规定，判决驳回陈启流的赔偿请求。
上诉人陈启流上诉称，一、崖州区政府征地后六年不向陈启流支付或足额支付青苗及附着物补偿款，违反法律规定。崖州区政府于2011年4月征地，于2016年11月补偿给陈启流195000元，但并未足额支付353080元。二、原审法院因认定陈启流在涉案承包地上超密度非正常种植槟榔树及芒果幼苗树而不予补偿，理由不成立。陈启流自1995年就进行间种和套种，这是其十六年来的正常生产模式。三、原审法院关于崖州区政府进行公证及证据保全后强制清除涉案青苗及附着物是保护了陈启流的权利的认定错误的。涉案青苗的数量应以2011年4月清点的数据为准。四、原审法院应当采信陈启流的提供的证据4，对其手摇井应当予以补偿。五、崖州区政府制作的《国家建设征地拆迁补偿表》未给予陈启流足额补偿，尚未补偿的青苗及附着物应当按照三亚市人民政府（2013）43号文的标准再给予补偿。综上，请求撤销原审判决，改判支持陈启流的诉讼请求。
被上诉人崖州区政府答辩称，一、崖州区政府的清除行为符合法律规定。陈启流称崖州区政府六年未向未其支付补偿款，是因为双方对补偿金额一直在协商，未能达成一致。2016年，陈启流对青苗补偿予以签名确认，崖州区政府按确认的金额向其支付了补偿款。因此，崖州区政府不存在拖延支付补偿款或不足额支付补偿款的情形。二、陈启流超密度种植青苗，超出了正常范围，也超出了补偿范围，明显存在抢种行为。崖州区政府请三亚市公证处进行公证清点，并通过拍照、录像进行证据保全，已经完整地保护了陈启流的权益。三、崖州区政府强制清除行为程序合法。征地过程中，崖州区政府向陈启流发了各种清除通知，但陈启流不予配合。为推进涉案重点项目进度，不能因陈启流一人而耽误工程进度，崖州区政府方才对陈启流的青苗进行公证保全后推进项目。四、崖州区政府对陈启流的青苗进行足额补偿。根据公证清点情况，并经陈启流签名确认，其青苗补偿款为19.5万元，陈启流领取了全部补偿款，现在再向崖州区政府要求补偿没有事实根据。综上，请求二审法院判决驳回上诉，维持原审判决。
二审中，双方当事人均未提交新的证据。
二审查明，陈启流因不服崖州区政府于2013年8月20日强制清除其承包的涉案1.68亩土地上的青苗及附着物，另案向原审法院起行政诉讼，请求确认崖州区政府的强制清除行政行为违法（以下简称行政强制一案），同时提起了本案。针对行政强制一案，原审法院作出（2017）琼02行初42号行政判决，驳回其诉讼请求。陈启流不服，向本院提出上诉。本院于2017年11月20日作出(2017)琼行终1228号行政判决，驳回上诉，维持原判。
二审查明的其他事实与原审认定的事实一致。
本院认为，根据《中华人民共和国国家赔偿法》第二条第一款、第三条、第四条的规定，行政机关及其工作人员在行使行政职权时，有违法实施行政处罚或者造成财产损害的其他违法行为的，受害人有权取得国家赔偿的权利；因公民、法人和其他组织自己的行为致使损害发生的或者法律规定的其他情形，国家不承担赔偿责任。陈启流因崖州区政府实施强制清除其涉案承包地上的青苗及附着物，向原审法院另行提起行政强制案的同时，提起本案。针对行政强制一案，本院于2017年11月20日作出(2017)琼行终1228号行政判决，维持了原审法院驳回陈启流诉讼请求的判决。此外，陈启流在本案中主张赔偿的青苗系超密度非常规种植，不符合补偿方案要求，且涉案青苗及附着物经公证清点后，陈启进行了签名确认，并领取了补偿款，故其在本案中请求崖州区政府赔偿其剩余青苗及附着物补偿款没有事实根据和法律依据，依法应予驳回。
综上，上诉人陈启流的上诉请求与理由不成立，本院不予支持。原审判决认定事实清楚，适用法律正确，判决结果并无不当。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。
审判长朱望锋
审判员吴天月
审判员陈焱
书记员陈欣欣
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dirData = {Elements: [\"RelateInfo\", \"LegalBase\"],RelateInfo: [{ name:
\"审理法院\", key: \"court\", value: \"潍坊市奎文区人民法院\" },{ name: \"案件类型\", key:
\"caseType\", value: \"民事案件\" },{ name: \"案由\", key: \"reason\", value:
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[{法规名称:\'《中华人民共和国婚姻法（2001年）》\',Items:[{法条名称:\'第三十二条第一款\',法条内容:\' 第三十二条
男女一方要求离婚的，可由有关部门进行调解或直接向人民法院提出离婚诉讼。
人民法院审理离婚案件，应当进行调解；如感情确已破裂，调解无效，应准予离婚。
有下列情形之一，调解无效的，应准予离婚：
（一）重婚或有配偶者与他人同居的；
（二）实施家庭暴力或虐待、遗弃家庭成员的；
（三）有赌博、吸毒等恶习屡教不改的；
（四）因感情不和分居满二年的；
（五）其他导致夫妻感情破裂的情形。
一方被宣告失踪，另一方提出离婚诉讼的，应准予离婚。
\'},{法条名称:\'第三十六条第一款\',法条内容:\' 第三十六条
父母与子女间的关系，不因父母离婚而消除。离婚后，子女无论由父或母直接抚养，仍是父母双方的子女。
离婚后，父母对于子女仍有抚养和教育的权利和义务。
离婚后，哺乳期内的子女，以随哺乳的母亲抚养为原则。哺乳期后的子女，如双方因抚养问题发生争执不能达成协议时，由人民法院根据子女的权益和双方的具体情况判决。
\'},{法条名称:\'第三十七条第一款\',法条内容:\'
第三十七条
离婚后，一方抚养的子女，另一方应负担必要的生活费和教育费的一部或全部，负担费用的多少和期限的长短，由双方协议；协议不成时，由人民法院判决。
关于子女生活费和教育费的协议或判决，不妨碍子女在必要时向父母任何一方提出超过协议或判决原定数额的合理要求。
\'},{法条名称:\'第三十八条第一款\',法条内容:\'
第三十八条 离婚后，不直接抚养子女的父或母，有探望子女的权利，另一方有协助的义务。
行使探望权利的方式、时间由当事人协议；协议不成时，由人民法院判决。
父或母探望子女，不利于子女身心健康的，由人民法院依法中止探望的权利；中止的事由消失后，应当恢复探望的权利。
\'}]},{法规名称:\'《最高人民法院关于人民法院审理离婚案件处理子女抚养问题的若干具体意见》\',Items:[{法条名称:\'第三条\',法条内容:\'
3.对两周岁以上未成年的子女，父方和母方均要求随其生活，一方有下列情形之一的，可予优先考虑：
（1）已做绝育手术或因其他原因丧失生育能力的；
（2）子女随其生活时间较长，改变生活环境对子女健康成长明显不利的；
（3）无其他子女，而另一方有其他子女的；
（4）子女随其生活，对子女成长有利，而另一方患有久治不愈的传染性疾病或其他严重疾病，或者有其他不利于子女身心健康的情形，不宜与子女共同生活的。
\'}]}]};if
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