海南省海口市中级人民法院
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（2017）琼01行终114号
上诉人（原审原告）王群源，男，1964年4月7日出生，汉族，住海口市。
委托代理人王多卫，男，1990年6月7日出生，汉族，住海口市，系原告儿子。
委托代理人曹开旺，海南国岛律师事务所律师。
被上诉人（原审被告）海口市龙华区城市管理行政执法局，住所地海口市龙昆北路19号。
法定代表人王小龙，局长。
委托代理人张联捷，该局科员。
委托代理人张颖宁，海南嘉法律师事务所律师。
上诉人王群源因与被上诉人海口市龙华区城市管理行政执法局（以下简称龙华区城管局）强制拆除房屋行政赔偿纠纷一案，不服海口市龙华区人民法院（2016）琼0106行赔初1号行政判决，向本院提起上诉。本院依法组成合议庭，公开开庭审理了本案。上诉人王群源的委托代理人王多卫、曹开旺，被上诉人龙华区城管局的委托代理人张颖宁、张联捷到庭参加诉讼。本案现已审理终结。
原审法院认定，2016年2月26日，龙华区城管局经对海口市苍西村清查，向王群源作出《责令停止违法（章）行为通知书》，认为王群源在海口市××路号新建楼房的行为违反了《中华人民共和国城乡规划法》第四十条的规定，责令王群源立即停止违法行为，告知王群源如继续强行进行违法行为，龙华区城管局将依法采取强制措施予以制止，并从重处罚。同日，龙华区城管局作出《责令限期改正通知书》，认为王群源未经规划许可，从事新建楼房的行为违反了《中华人民共和国城乡规划法》第四十条、第六十四条的规定，依据《中华人民共和国行政处罚法》第二十三条的规定，责令王群源于2016年2月29日前改正，提供相关报批手续，同时告知王群源逾期未提供的，龙华区城管局将依法进行处理。上述两份文书于2016年2月26日送达王群源。龙华区城管局经核实，发现王群源在收到通知后，仍存在继续搭建房屋的违法行为。2016年3月2日，龙华区城管局强制拆除涉案违法建筑物。王群源不服，于2016年4月1日向海口市龙华区人民法院提起行政诉讼。2016年9月30日，海口市龙华区人民法院作出（2016）琼0106行初36号行政判决书，认定龙华区城管局针对王群源搭建的违法建筑物实体认定及处理结果恰当，对王群源房屋进行拆除的行政行为正确，但程序有误。判决确认龙华区城管局强拆王群源房屋的行政行为违法。
原审判决认为，王群源未经规划部门批准，私自搭建的房屋系违法建筑物。根据《中华人民共和国国家赔偿法》第二条规定：”国家机关和国家机关工作人员行使职权，有本法规定的侵犯公民、法人和其他组织合法权益的情形，造成损害的，受害人有依照本法取得国家赔偿的权利。”王群源所建房屋系违法建筑物，不属于法律保护的合法权益，王群源提出的行政赔偿请求于法无据，原审法院不予支持。据此，依照《中华人民共和国国家赔偿法》第二条、《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）项的规定，判决驳回王群源的诉讼请求。案件受理费50元，由王群源负担。
上诉人王群源上诉称，请求依法撤销原审判决，并改判被上诉人因其违法强拆上诉人房屋给上诉人造成的损失814128元（原材料757128元+拖欠的工人工资57000元=814128元）。事实与理由如下：一、被上诉人的强拆行为程序违法。《海南省查处违法建筑若干规定》第13条的规定：强制拆除违法建筑，应当提前五个工作日在现场公告强制拆除决定，告知实施强制拆除的时间、相关依据、当事人的权利和义务等；《海口市防控和处置违法建筑若干规定》第18的规定：城管执法部门作出强制拆除违法建筑决定前，应当事先催告建设单位或者个人履行限期拆除义务。被上诉人2016年3月2日强拆的行为完全忽略、违背了上述法规对强拆程序性的强制规定，属于程序严重违法。也正是因为被上诉人的程序违法，直接剥夺了上诉人行使救济权利的机会。上诉人早在2015年4月1日就已经按照《中华人民共和国城乡规划法》的规定向所在的苍西村委会提出宅基地建房的申请，并经村委会确认出具了土地权属证明及拟建房屋相邻四至村民的意见和房屋总平面图。只是由于相关办事部门和机关的推诿、散漫等种种原因未能及时取得建设规划许可证，但这并不代表上诉人没有申请建设规划许可证、也不代表当被上诉人严格按照程序执法时上诉人不能及时取得报建手续。二、被上诉人的强拆行为主体违法。《海口市防控和处置违法建筑若干规定》第19规定：对城镇违法建筑依法需要强制拆除的，城管执法部门应当向市或者区人民政府报告，由市或者区人民政府组织强制拆除。城管执法部门应当提前五个工作日在现场予以公告，告知实施强制拆除的时间、相关依据、当事人的权利和义务等。按照该条的规定，对违法建筑的强拆应当先向市或者区人民政府报告，再由市或区人民政府组织强拆。但本案中对上诉人房屋的强拆从立案到强拆仅6天。三、被上诉人的强拆行为实体违法。如上所述，上诉人早在2015年4月1日就已按照法律的规定向所在的苍西村委会提出宅基地建房的申请，且上诉人是在其原宅基地上新建房屋，是因为上诉人家庭成员增多，原有住房面积太小，生活空间过于拥挤才新建，上诉人建房的目的不是为了作为”小产权房”出售或出租，而是为了生活的合理需求、为了响应政府的号召改善居住环境而建。根据《海口市防控和处置违法建筑若干规定》第22条的规定：本规定施行前居（村）民基于生活的合理需求建设的住所以及其他特殊情形的违法建筑，可以暂缓拆除。暂缓拆除的具体条件和办法由市人民政府另行制定并向社会公布。对上诉人基于生活的合理需求而建的房屋法规规定可以暂缓拆除，但被上诉人非但没有暂缓拆除，反而连最基本、最重要的程序、过程都省略、忽视。就在2016年10月8日上午，海南省长刘赐贵主持召开六届省政府第71次常务会议，会议原则通过了《海南省行政执法规则》，对行政执法的资格、人员、程序、文书管理、责任追究等各环节进行明确，进一步规范行政机关及其行政执法人员的执法行为。会议强调，在推进全面依法治国的进程中，依法行政是重要内容，要认真贯彻落实”坚持严格规范公正文明执法”的要求，切实提高行政执法水平。综上，上诉人认为被上诉人的强拆行为存在以上诸多违法之处、其违法行为给上诉人造成了80多万元的财产损失、违法行为与损害结果之间存在因果关系，按照《中华人民共和国国家赔偿法》的规定依法应当对其违法行为给上诉人造成的损失进行全额赔偿。但一审错误的认定上诉人的财产不属于法律保护的合法权益，进而作出不予赔偿的判决。四、法律文书书写不合规范。按照《最高人民法院关于审理行政赔偿案件若干问题的规定》第35条的规定，本案的”行政判决书”应书写为”行政赔偿判决书”；按照《中华人民共和国国家赔偿法》第41条的规定，国家赔偿案件，人民法院不得收取赔偿请求人的任何费用，本案原审认定案件受理费50元由上诉人负担违法。
被上诉人龙华区城管局答辩称，一、王群源擅自搭建的楼房系违法建筑物，在其拒不改正的情况下，应依法予以拆除。王群源擅自搭建的位于海口市苍西村496号的楼房未经规划部门批准，系违法建筑物，在王群源拒不改正的情况下应依法予以拆除。鉴于被上诉人对王群源搭建的违法建筑物定性准确，证据充分，适用法律、法规正确。龙华区法院作出（2016）琼0106行初36号《行政判决书》，认定王群源搭建的房屋属违法建筑物，同时，认定（龙华区城管局针对王群源）搭建的违法建筑物实体认定及处理结果恰当，对王群源房屋进行拆除的行政行为正确，但程序有误。二、王群源擅自搭建的楼房系违法建筑物，不属于法律保护的合法权益。《中华人民共和国国家赔偿法》第二条规定：”国家机关和国家机关工作人员行使职权有本法规定的侵犯公民、法人、和其他组织合法权益的情形、造成损害的，受害人有依照本法获取国家赔偿的权利。”王群源所搭建的房屋系违法建筑物，不属于法律保护的合法权益。被上诉人认为，龙华区法院（2016）琼0106行赔初1号《行政判决书》认定事实清楚，适用法律正确，被上诉人据此请求法院驳回王群源的上诉请求。
二审期间，上诉人王群源和被上诉人龙华区城管局均未提交新证据。
本院经审理查明的其他事实与一审判决认定的事实基本一致，本院予以确认。
另查明，上诉人王群源在起诉之前没有向被上诉人龙华区城管局提出过行政赔偿申请，但在提起行政诉讼的同时提起了行政赔偿诉讼。
本院认为，海口市龙华区人民法院（2016）琼0106行初36号行政判决已经确认龙华区城管局强制拆除王群源房屋的行政行为违法。该判决已发生法律效力。本案的争议焦点是龙华区城管局是否应当给予王群源行政赔偿。《中华人民共和国国家赔偿法》第二条规定：”国家机关和国家机关工作人员行使职权，有本法规定的侵犯公民、法人和其他组织合法权益的情形，造成损害的，受害人有依照本法取得国家赔偿的权利。”据此，行政赔偿必须以合法权益受到损害为前提。王群源请求赔偿的涉案建筑物，已被龙华区城管局作出的《责令限期改正通知书》及《案件调查终结报告》认定为违章建筑物。且该违章建筑的性质已经生效判决（即海口市龙华区人民法院作出（2016）琼0106行初36号行政判决）确认。因此，王群源就违法建筑物要求赔偿与国家赔偿法的规定不符。本院依法不予支持。关于王群源提出的一审文书的名称”行政判决书”应书写为”行政赔偿判决书”问题，根据《最高人民法院关于审理行政赔偿案件若干问题的规定》第三十五条规定：人民法院对单独提起行政赔偿案件作出判决的法律文书的名称为行政赔偿判决书、行政赔偿裁定书或者行政赔偿调解书。本案系王群源在提起行政诉讼的同时一并提出行政赔偿请求，并非单独提起行政赔偿的案件，故法律文书名称不适用上述规定，一审法院文书制作并无错误。此外，根据《诉讼费交纳办法》第八条规定，行政赔偿案件不交纳案件受理费，故本案收取的上诉费50元人民币应退还给王群源。
综上，一审判决认定事实清楚，适用法律正确，王群源上诉理由不能成立，依照《中华人民共和国行政诉讼法》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。
本案不收取案件受理费。上诉人王群源预交的二审案件受理费人民币50元，予以退还。
本判决为终审判决。
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审判长黄勇
审判员温方
审判员钟山
书记员杨聪
附：本判决适用的相关法律依据
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