海南省高级人民法院
p t ; ” > 行 政 裁 定 书
(2017)琼行终544号
海南省高级人民法院
行政裁定书
(2017)琼行终544号
上诉人（原审原告）昌江棋子湾琼昌旅游开发有限公司，住所地昌江黎族自治县昌化镇昌城村三区68号。
法定代表人陈琼帮，公司总经理。
委托代理人黎元君，北京黎元君律师事务所律师。
委托代理人陈琼列，男，1957年10月20日出生，汉族，住址海南省海口市龙华区国贸三横路*号琼泰公寓*****房。
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市民广场。
法定代表人林安，县长。
委托代理人李路生，该县政府法制办主任。
被上诉人（原审被告）昌江黎族自治县昌化镇人民政府，住所地昌江黎族自治县昌化镇政府大院。
法定代表人赵恒江，镇长。
委托代理人李福林，该镇政府工作人员。
原审第三人海南雨润地华旅游发展有限公司，住所地昌江黎族自治县石碌镇人民北路209号。
法定代表人杨观什，总经理。
原审第三人昌江广亿房地产开发有限公司，住所地昌江黎族自治县石碌镇人民南路中行综合楼302房。
法定代表人朱心原，副总经理。
委托代理人黄勇兵，该公司职员。
原审第三人昌江盛大投资有限公司，住所地昌江黎族自治县石碌镇环城东路北侧B2042房。
法定代表人朱心原，副总经理。
委托代理人韩婷，该公司职员。
原审第三人昌江中南房地产开发有限公司，住所地昌江黎族自治县昌化镇棋子湾旅游度假区5号路西侧。
法定代表人张晓军，董事长。
委托代理人李进君，该公司职员。
原审第三人海南恒盛元棋子湾开元度假村有限公司，住所地昌江黎族自治县昌化镇棋子湾旅游度假区D-3地块开元度假村。
法定代表人邱建林，董事长。
委托代理人邢益飞，该公司职员。
原审第三人昌江恒盛元棋子湾旅游置业有限公司，住所地昌江黎族自治县昌化镇石昌公路昌化镇段北侧E-54地块千和家园。
法定代表人邱建林，董事长。
委托代理人邢益飞，该公司职员。
原审第三人昌江恒盛元棋子湾旅游置业有限公司开元名都酒店分公司，住所地昌江黎族自治县昌化镇棋子湾旅游度假区D-3地块开元度假村。
法定代表人金太志，董事长。
委托代理人邢益飞，该公司职员。
原审第三人海南希望棋子湾旅游开发有限公司，住所地昌江黎族自治县石碌镇人民北路汽车站大院。
法定代表人周颖，总经理。
上诉人昌江棋子湾琼昌旅游开发有限公司（简称琼昌公司）诉被上诉人昌江黎族自治县人民政府（简称昌江县政府）、昌江黎族自治县昌化镇人民政府（简称昌化镇政府）及原审第三人海南雨润地华旅游发展有限公司（简称雨润公司）、昌江广亿房地产开发有限公司（简称广亿公司）、昌江盛大投资有限公司（简称盛大公司）、昌江中南房地产开发有限公司（简称中南公司）、海南恒盛元棋子湾开元度假村有限公司（简称恒盛元度假公司）、昌江恒盛元棋子湾旅游置业有限公司（简称恒盛元置业公司）、昌江恒盛元棋子湾旅游置业有限公司开元名都酒店分公司（简称开元名都公司）、海南希望棋子湾旅游开发有限公司（简称希望公司）行政许可一案，琼昌公司不服海南省第二中级人民法院（2016）琼97行初353号之一行政裁定，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。本案现已审理终结。
原审查明，2001年5月31日，琼昌公司与昌化镇政府签订了《协议书》，约定了棋子湾综合旅游项目开发的相关事项。2003年2月11日，昌江县政府作出《一期纪要》，主要内容是：中止昌化镇政府与琼昌公司签订的《协议书》，协议终止经营活动。2003年2月18日，昌化镇政府根据《1号通知》和《一期纪要》作出《撤离通知》，决定解除与琼昌公司签订的《协议书》，并要求琼昌公司停止经营，限期搬离。琼昌公司收到通知后未撤出棋子湾，并继续经营。2003年4月24日，昌化镇政府作出《8号通知》，再次限令琼昌公司于2003年4月24日前撤出棋子湾。琼昌公司不同意撤出，仍继续经营，后昌化镇政府组织有关人员对琼昌公司经营的设施进行了清理，琼昌公司遂向法院提起诉讼。经原海南省海南中级人民法院作出（2004）海南行初字第81号行政判决（以下简称81号行政判决）及本院作出（2005）琼行终字第35号行政判决（以下简称35号行政判决），撤销了昌江县政府作出的《1号通知》《一期纪要》以及昌化镇政府作出的《撤离通知》《8号通知》。昌江县政府不服，向本院申诉。2012年11月29日，本院作出（2012）琼行监字第61号行政裁定，裁定对本案予以再审。2013年6月9日，本院作出（2013）琼行再终字第1号行政判决（以下简称1号行政判决），撤销了81号行政判决与35号行政判决，驳回了琼昌公司的诉讼请求。1号行政判决认定”昌江县政府基于近期省委、省政府将对棋子湾景区进行统一规划和整体开发，在该协议中涉及土地出让部分内容违法，其他内容亦实际无法履行的情况下，为了更好地实现开发和保护的目的以及社会公共利益的需要，避免棋子湾的开发经营出现新的遗留问题，在正式批复下来之前，作出《1号通知》及《一期纪要》，并由昌化镇政府根据上述通知和纪要作出相应的《撤离通知》及《8号通知》，单方终止昌化镇政府与琼昌公司签订的《协议书》，是行使行政优益权的行为，并不存在违法的问题。”但是，该判决也认为：由于琼昌公司在签订协议取得棋子湾旅游开发经营权后，已投入一定的资金进行实际开发经营，现昌化镇政府单方终止合同的行为，确实给琼昌公司造成因开发投入的损失，以及丧失后续开发经营的经济损失，昌化镇政府应给予琼昌公司相应的赔偿或补偿，对此琼昌公司可另行通过行政赔偿诉讼予以救济。琼昌公司不服，向最高人民法院申请再审，最高人民法院于2014年作出（2013）行监字第536号《通知书》（以下简称536号《通知书》），决定不对琼昌公司的申请提起再审，同时告知琼昌公司可以对昌化镇政府单方终止《协议书》所造成的经济损失，另行通过行政赔偿诉讼予以救济。琼昌公司遂提起本案诉讼，请求：一、判决确认琼昌公司初始开发和培育了”棋子湾品牌”并依法享有其相应的（棋子湾名称权、棋子湾广告语、摄影作品、画册、图案、棋子湾海蚀地貌岩石拟人化、拟物化旅游产品）专有权利；二、判决确认昌江县政府、昌化镇政府批准或许可八位原审第三人开发和经营琼昌公司享有的棋子湾旅游经营开发权范围内的项目违法。
原审认为，一、琼昌公司请求判决确认其初始开发和培育了”棋子湾品牌”并依法享有其相应专有权利。但是，对于专有权利的确认或享有应是法律授权的行政机关的职权范围，不属于人民法院的职权范围，因此琼昌公司提起该诉讼不属于人民法院行政诉讼的受案范围，依法应予驳回。二、《中华人民共和国行政诉讼法》第二十五条第一款规定：”行政行为的相对人以及其他与行政行为有利害关系的公民、法人或者其他组织，有权提起诉讼。”本案中，琼昌公司请求判决确认昌江县政府、昌化镇政府批准或许可八位原审第三人开发和经营琼昌公司享有的棋子湾旅游经营开发权范围内的项目违法的理由是：琼昌公司于2001年5月31日与昌化镇政府签订了开发棋子湾的《协议书》，约定琼昌公司在棋子湾享有独占、排他的旅游经营开发权。根据该院查明事实，2003年2月18日，昌化镇政府根据《1号通知》和《一期纪要》作出《撤离通知》，决定终止双方签订的《协议书》。已生效的1号行政判决确认昌化镇政府单方终止与琼昌公司签订的《协议书》的行为是行使行政优益权的行为，并不存在违法的问题。琼昌公司认为已生效的1号行政判决确定了其在约定的范围内对棋子湾享有独占、排他的旅游经营开发权，是琼昌公司对1号判决内容的错误理解。1号行政判决确定琼昌公司取得相应的旅游开发经营权的前提是《协议书》的约定，由于《协议书》已终止，琼昌公司取得旅游开发经营权的基础也随之丧失。因此，昌江县政府、昌化镇政府批准或许可八位原审第三人开发和经营棋子湾项目的行为与琼昌公司并无利害关系，其不具备本案原告的主体资格，对其起诉依法应予驳回。1号行政判决同时确认，由于琼昌公司在签订协议取得棋子湾旅游开发经营权后，已投入一定的资金进行实际开发经营，昌化镇政府单方终止合同的行为，确实给琼昌公司造成了经济损失，琼昌公司可依照生效判决所确定的内容另行提起行政赔偿诉讼。原审法院遂裁定驳回琼昌公司的起诉，案件受理费50元退回给琼昌公司。
上诉人琼昌公司上诉称，一、原审裁定驳回确认琼昌公司培育和开发了”棋子湾品牌”专有权利错误。琼昌公司依据与昌江县政府、昌化镇政府之间签订的《协议书》，成功开发了棋子湾品牌。棋子湾品牌权的确认属于行政诉讼新型案件。二、原审裁定驳回确认昌江县政府、昌化镇政府批准或许可八位原审第三人开发、经营棋子湾旅游经营开发权范围内的项目违法错误。海南省高级人民法院就琼昌公司与昌江县政府、昌化镇政府旅游项目开发行政合同纠纷一案，先后作出了35号行政判决、1号行政判决。在1号行政判决撤销35号行政判决之前，琼昌公司获得开发棋子湾的行政许可并没有被撤销，琼昌公司仍在管理棋子湾景区，昌江县政府、昌化镇政府批准或许可八位原审第三人开发、经营棋子湾旅游经营开发权范围内的项目没有法律和协议依据，侵害了琼昌公司的合法权益，应当确认违法。综上，请求二审法院撤销原裁定，指令原审法院继续审理。
被上诉人昌江县政府、昌化镇政府共同答辩称，原审法院认定事实清楚，适用法律正确，裁定结果并无不当，上诉人琼昌公司的上诉请求没有事实根据与法律依据，请求二审法院裁定驳回上诉，维持原裁定。
原审第三人盛大公司、广亿公司、中南公司、恒盛元度假公司、恒盛元置业公司、开元名都公司共同述称，原审法院认定事实清楚，适用法律正确，裁定结果并无不当，请求二审法院裁定驳回上诉，维持原裁定。
原审第三人雨润公司、希望公司经本院依法通知未参加法庭询问，亦未书面陈述意见。
本院认为，本案的争议焦点为：一、琼昌公司提起的第一项诉讼请求是否属于人民法院的审理范围；二、琼昌公司提起第二项诉讼请求的原告主体是否适格。
一、关于琼昌公司提起的第一项诉讼请求是否属于人民法院的审理范围的问题。根据《中华人民共和国行政诉讼法》第六条规定，人民法院对行政行为的是否合法进行审查。本案中，琼昌公司起诉请求确认该公司开发并培育了”棋子湾品牌”，并依法享有相应的专有权利，该项诉求属于对民事权利的确认，超出行政诉讼的审理范围，故其该项诉讼请求不属于人民法院行政诉讼的受案范围。如琼昌公司认为其对涉案棋子湾景区享有某项民事权利，可依据我国现行法律，向相应的行政部门提出确权申请。
二、关于琼昌公司提起第二项诉讼请求的原告主体是否适格的问题。根据本案查明事实，琼昌公司与昌江县政府、昌化镇政府旅游项目开发行政合同纠纷一案，本院已作出生效的1号行政判决确认昌化镇政府单方终止履行与琼昌公司签订的《协议书》并不违法，但对琼昌公司在棋子湾项目中开发投入的损失及丧失开发经营权的损失应给予相应的赔偿或补偿，琼昌公司对此可另行通过行政赔偿诉讼予以救济。故琼昌公司依据《协议书》约定取得的棋子湾旅游开发经营权已终止，琼昌公司在本项诉讼请求中主张其对棋子湾景区享有旅游经营开发权已丧失协议基础，昌江县政府、昌化镇政府批准或许可八位原审第三人进驻棋子湾开发和经营与琼昌公司没有利害关系。依照《中华人民共和国行政诉讼法》第二十五条第一款、第四十九条第（一）项的规定，琼昌公司提起本案第二项诉讼请求的原告主体不适格，不符合起诉的条件，依法应予驳回。
综上所述，原审裁定认定事实清楚，适用法律正确，裁定结果并无不当。上诉人琼昌公司的上诉请求与理由不成立，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）项的规定，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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审判长朱望锋
审判员聂海波
审判员陈焱
书记员陈欣欣
《中华人民共和国行政诉讼法》
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系统尚未收录或引用有误
\'},{法条名称:\'第二百四十三条\',法条内容:\'第二百四十三条
系统尚未收录或引用有误
\'},{法条名称:\'第二百四十四条\',法条内容:\'第二百四十四条
系统尚未收录或引用有误
\'}]},{法规名称:\'《最高人民法院关于人民法院执行工作若干问题的规定（试行）》\',Items:[{法条名称:\'第三十六条\',法条内容:\'
36.被执行人在有关单位的收入尚未支取的，人民法院应当作出裁定，向该单位发出协助执行通知书，由其协助扣留或提取。
\'},{法条名称:\'第三十八条第一款\',法条内容:\'
38.被执行人无金钱给付能力的，人民法院有权裁定对被执行人的其他财产采取查封、扣押措施。裁定书应送达被执行人。
采取前款措施需有关单位协助的，应当向有关单位发出协助执行通知书，连同裁定书副本一并送达有关单位。
\'},{法条名称:\'第三十九条\',法条内容:\'
39.查封、扣押财产的价值应当与被执行人履行债务的价值相当。
\'},{法条名称:\'第四十条\',法条内容:\'
40.人民法院对被执行人所有的其他人享有抵押权、质押权或留置权的财产，可以采取查封、扣押措施。财产拍卖、变卖后所得价款，应当在抵押权人、质押权人或留置权人优先受偿后，其余额部分用于清偿申请执行人的债权。
\'}]}]};if
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