海南省高级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼行终118号
海南省高级人民法院
行政判决书
（2017）琼行终118号
上诉人（原审被告）儋州市人民政府，住所地海南省儋州市中兴大道市委办公大楼。
法定代表人张耕，该市市长。
委托代理人王潇潇，儋州市人民政府法制办公室工作人员。
委托代理人唐符力，儋州市国土资源局法规科科长。
被上诉人（原审原告）河南建设总公司海南公司洋浦分公司，住所地海南省儋州市那大镇和平路20号。
法定代表人李公举，该公司经理。
委托代理人苏天良，海南嘉法律师事务所律师。
上诉人儋州市人民政府（以下简称儋州市政府）因被上诉人河南建设总公司海南公司洋浦分公司（以下简称洋浦分公司）诉其不履行土地行政补偿法定职责一案，不服海南省第二中级人民法院（2016）琼97行初4号行政判决，向本院提起上诉。本院依法组成合议庭，对本案进行了审理，现已审理终结。
本案被诉行政行为：洋浦分公司以儋州市政府建设儋州市中兴公园占用其享有合法使用权的土地为由，申请儋州市政府补偿其损失，但儋州市政府一直未予以答复。
原审查明，儋州市政府于1993年将位于那大控规25-10-15街区地段（即南龙居住小区，儋州市中兴公园西侧）面积20.1亩土地出让给洋浦分公司，用于开发居民宅基地项目，每亩地价14万元，洋浦分公司已付清地款。此后，原儋州市规划局（现为儋州市住房和城乡建设局）聘请同济大学海南设计院对该那大控规25-10-15街区地段进行设计规划。同济大学海南设计院将该地设计为4排74套居民住宅基地，其中，外面两排每套宅基地面积8×12＝96平方米，里边两排每套面积8×15＝120平方米，原儋州市规划局批准该设计规划，并取名为南龙居住小区，洋浦分公司向当时的儋州市规划局申领了《建设用地规划许可证》，至2008年已基本完成南龙居住小区平整分户等建设。2000年9月，儋州市政府决定在南龙居住小区东侧建设儋州市××园。儋州市政府划定儋州市中兴公园时，将原设计开通的东五路北段及原儋州市规划局批准规划的74号宅基地全部划入中兴公园，将原儋州市规划局批准该设计规划的52、53、54、55号宅基地拦腰截断划入中兴公园，并建起围墙堵住了南龙居住小区东面的出入口。由于东五路北段被划入中兴公园，导致南龙居住小区设在东五路北段交通出口被堵，南龙居住小区的居民不得不占用已规划的9号宅基地作为小区连接北二路出入口，导致洋浦分公司实际上对52、53、54、55、74、9号宅基地无法按照规划作为宅基地出售使用。洋浦分公司发现此情况后，不断向儋州市政府、儋州市国土资源局（以下简称儋州市国土局）、儋州市住房和城乡建设局（以下简称儋州市住建局）反映情况并要求补充损失的宅基地，但儋州市政府一直未对洋浦分公司进行补偿。2008年12月，原儋州市建设局向儋州市政府发出《关于解决中兴公园堵塞居住小区通道问题的报告》并提出解决方案，建议儋州市政府补偿面积相当的宅基地给洋浦分公司；儋州市国土局也向儋州市政府发出《关于解决中兴公园堵塞南龙居住小区通道和占地问题的处理意见》，确认儋州市中兴公园的围墙已占用洋浦分公司的宅基地，并提出补偿意见。2016年3月20日，洋浦分公司向原审法院申请对南龙居住小区实际使用的土地面积、南龙居住小区规划总平面图中9号宅基地的面积、儋州市中兴公园用地是否落入南龙居住小区规划用地界线范围内及落入的土地面积等事项申请测量司法鉴定。经原审法院依法委托，海南正维测绘有限公司作出海南正维[2016]测鉴字第21号《司法鉴定意见书》（以下简称《司法鉴定意见书》），证明南龙居住小区规划土地面积为20.09亩；南龙居住小区实际使用的土地面积为19.30亩；南龙居住小区规划总平面图中9号宅基地的面积为0.14亩（96.00平方米）；儋州市中兴公园使用的落在南龙居住小区规划用地界线范围内的土地面积为0.79亩。
原审认为，儋州市政府因城市规划建设的需要，其决定建设的儋州市中兴公园占用了洋浦分公司合法享有使用权的位于南龙居住小区规划用地界线范围内的0.79亩土地并致使面积为0.14亩的9号宅基地无法按照规划作为宅基地对外出售使用，洋浦分公司因儋州市政府的行为导致无法作为宅基地正常使用的土地与儋州市政府建设儋州市中兴公园的行为存在因果关系，且儋州市政府一直不对洋浦分公司的损失进行补偿处于连续或者继续状态，故儋州市政府应对洋浦分公司的被占用的土地及无法作为宅基地对外出售使用的土地进行安置补偿。儋州市政府在原审庭审时明确表示无法给洋浦分公司安置宅基地，则儋州市政府应对洋浦分公司的土地损失进行货币补偿。综合本案的案情与实际情况，儋州市政府对洋浦分公司的土地损失进行补偿的金额应当参照《司法鉴定意见书》的鉴定结果进行补偿，儋州市政府对洋浦分公司的土地损失进行补偿的土地范围为儋州市政府占用洋浦分公司合法享有使用权的0.79亩土地及洋浦分公司无法按照规划作为宅基地对外出售使用的面积为0.14亩的9号宅基地，依法酌定儋州市政府应向洋浦分公司履行补偿0.93亩土地的法定职责。综上，依照《中华人民共和国行政诉讼法》第七十二条的规定，判决责令儋州市政府于原审判决生效之日起三个月内履行对洋浦分公司位于南龙居住小区规划用地界线范围内的0.93亩土地予以补偿的法定职责。案件受理费50元、鉴定费12000元，均由儋州市政府负担。
上诉人儋州市政府上诉称，原审判决认定儋州市政府占用了洋浦分公司位于南龙居住小区规划用地界线范围内的0.93亩土地与事实不符。中兴公园是在2000年经儋州市政府批准同意建设，公园建设用地范围是收回儋州石油公司原油库用地，规划建设未超出原油库用地。由于中兴公园临南龙小区部分地形存在较大高差，市园林管理局已沿中兴公园建设护土挡土墙，沿挡土墙有小区出行道路，不存在交通堵塞问题。原审判决认定事实不清，依据法律错误，判决结论不当。综上，请求：一、撤销海南省第二中级人民法院（2016）琼97行初4号行政判决；二、驳回洋浦分公司的起诉或诉讼请求。
被上诉人洋浦分公司辩称，儋州市政府于1993年将位于那大控规25-10-15街区地段出让给洋浦分公司。1996年儋州市政府又将该地段调整到那大控规31-06街区地段，并将出让面积调整为27.05亩。1997年儋州市政府又将调整给洋浦分公司的那大控规31-06街区地段调整回那大控规25-10-15街区地段。这时红线图的20.1亩地中的0.79亩已规划入原儋州石油公司油库用地（即现在的中兴公园），规划中的东五路全部划入原儋州石油公司油库用地，2000年儋州市政府在原儋州石油公司油库用地上建中兴公园，也未退还0.79亩地给答辩人，导致规划中的52、53、54、55、74号宅基地被中兴公园占据。上述宅基地无法按规划图纸建房，规划的东五路更是全部划入原儋州石油公司油库用地，导致南龙居住小区的住宅住户无路可出，只得强占9号宅基地作为出入通道。洋浦分公司不断向儋州市政府反映此情况，要求解决。但儋州市政府至今未落实解决相关情况。因此，原审判决中表述中兴公园占用洋浦分公司的0.79亩土地，并无不妥。综上，原审判决认定事实清楚，适用法律正确。请求：驳回上诉，维持原判。
本院经勘查现场发现，中兴公园围墙紧贴南龙居住小区部分宅基地，审理期间，儋州市政府表示对《司法鉴定意见书》中载明的中兴公园占用南龙居住小区部分土地的事实无异议。本院认定的其他事实、证据与原审判决认定的事实、证据一致。
本院认为，儋州市政府建设儋州市中兴公园，占用了洋浦分公司合法享有国有土地使用权的位于南龙居住小区的部分宅基地，并将原设计开通的东五路北段全部纳入中兴公园，又在南龙居住小区规划连接东五路的出入通道建起围墙，导致小区规划中的部分宅基地被占用作为出入口的通行道路，南龙居住小区无法对外出售的宅基地的总面积为0.93亩。儋州市政府建设中兴公园并占用南龙居住小区部分规划用地的行为直接导致了南龙居住小区0.93亩的宅基地无法对外出售，二者之间存在法律上的因果关系。儋州市政府占地行为存续至今，虽洋浦分公司不断反映情况并要求补偿，但儋州市政府一直未就其行为给洋浦分公司造成的损失作出处理或者补偿。儋州市政府应依法履行就占用南龙居住小区部分土地给洋浦分公司造成损失作出恢复原状处理或者相应的补偿的法定职责。原审判决责令儋州市政府履行相应法定职责正确，依法应予维持。
综上，儋州市政府的上诉主张缺乏事实根据和法律依据，其上诉理由及诉讼请求不能成立，本院不予支持。原审判决认定事实清楚，适用法律、法规正确，依法应予维持。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。
二审案件受理费50元由上诉人儋州市人民政府负担。
本判决为终审判决。
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审判长郑怀全
审判员王华
审判员黄胜敏
法官助理夏丽君
书记员颜恺
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