海南省第二中级人民法院
p t ; ” > 民 事 裁 定 书
(2017)琼97民终1085号
海南省第二中级人民法院
民事裁定书
(2017)琼97民终1085号
上诉人(原审原告)：吉春玲，女，1966年8月3日出生，黎族，住海南省乐东黎族自治县。
上诉人(原审原告)：符惠娥，女，1987年7月17日出生，黎族，住海南省乐东黎族自治县。系吉春玲长女。
上诉人(原审原告)：卢玲玉，女，1989年6月1日出生，黎族，住海南省乐东黎族自治县。系吉春玲次女。
上诉人(原审原告)：卢振，男，1993年8月15日出生，黎族，住海南省乐东黎族自治县。系吉春玲长子。
上诉人(原审原告)：卢周，男，1998年2月5日出��，黎族，住海南省乐东黎族自治县。系吉春玲次子。
上述五上诉人的共同委托诉讼代理人：胡越，上海市建纬（西安）律师事务所律师。
被上诉人（原审被告）：乐东黎族自治县抱由镇人民政府,住所地海南省乐东黎族自治县抱由镇乐安路299号。
法定代表人：吕永强，该镇镇长。
委托诉讼代理人：黄晓芬，海南瑞伊律师事务所律师。
委托诉讼代理人：刘德明，乐东黎族自治县抱由镇人民政府司法所所长。
上诉人吉春玲、符惠娥、卢玲玉、卢振、卢周（以下简称吉春玲等5人）因与乐东黎族自治县抱由镇人民政府（以下简称抱由镇政府）房屋拆迁安置补偿合同纠纷一案，不服海南省乐东黎族自治县人民法院（2017）琼9027民初492号民事裁定，向本院提起上诉。本院受理后，依法组成合议庭审理了本案。本案现已审理终结。
吉春玲等5人上诉请求：撤销一审裁定，指令海南省乐东黎族自治县人民法院对本案进行实体审理。事实和理由如下：本案属民事案件受案范围，一审裁定适用法律错误。一、现行的《民事案件案由规定》针对拆迁人与被拆迁人已签订合同，因该合同履行而产生争议的情形，设置房屋拆迁安置补偿合同纠纷这一独立的第三级民事案由，因履行该合同引发争议的案件应系民事案件，属于民事案件受案范围。二、根据《最高人民法院关于受理房屋拆迁、补偿、安置等案件问题的批复》之规定，”公民、法人或者其他组织对人民政府或城市房屋主管行政机关依职权作出的有关房屋拆迁、补偿、安置等问题的裁决��服，依法向人民法院提起诉讼的”与”拆迁人与被拆迁人因房屋补偿、安置等问题发生争议，或者双方当事人达成协议后，一方或双方当事人反悔，未经行政机关裁决，仅就房屋补偿、安置问题，依法向人民法院提起诉讼的。”是两类案件，后者作为民事案件受理。本案确系双方当事人因房屋补偿、安置问题产生的纠纷，属于民事案件受案范围。三、涉案合同系意思自治受到一定限制的民事合同。从涉案合同的内容来看，拆迁人征收被拆迁人合理使用的宅基地及拆除被拆迁人依法享有所有权的私有房屋，对被拆迁人给予补偿或者向被拆迁人交付房屋，被拆迁人自此对原宅基地不再享有使用权，对原房屋不再享有所有权。上述内容均涉及民事法律中所有权的取得、变更、消灭，属于民事合同调整。本案所涉土地房屋征收虽具有强制性，但合同的签订及履行体现双方的合意，符合民事行为的特质。且一审裁定认可双方”经过协商”，应理解为系两个平等主体基于真实意思表示对权利义务进行分配，因该约定的履行而产生的纠纷应属民事纠纷，本案属民事案件受案范围。四、关于本案法律适用问题。涉案合同签订于2010年3月28日，此时新行政诉讼法及其司法解释未公布施行且双方当事人对此无法预见，故涉案合同的性质依据当时法律应为民事合同。五、诉讼主体资格问题不应在本案进行审查。综上，本案本质上系民事案件并属民事案件受案范围，应适用未失效的《最高人民法院关于受理房屋拆迁、补偿、安置等案件问题的批复》。一审法院以本案系行政案件为由驳回吉春玲等5人的起诉错误，请求二审法院撤销一审裁定，指令一审法院对本案进行民事实体审理。
抱由镇政府辩称，一审法院驳回吉春玲等5人的起诉认定事实清楚，适用法律正确。一、本案属于行政案件受案范围。（一）涉诉协议依法属于行政协议。1.依照《最高人民法院关于适用<中华人民共和国行政诉讼法>若干问题的解释》第十一条的规定,涉诉协议的签订是政府因建设需要履行拆迁的行政职能，依法被认定为行政协议。2.吉春玲等5人的一审诉求超越民事案件受案范围。吉春玲等5人关于补足1亩宅基地面积并确定四至范围的请求实质是要求土地确权，不属人民法院管辖。3.涉诉的协议双方主体地位并不对等，不具有民事合同主体的平等性。（二）《最高人民法院关于受理房屋拆迁、补偿、安置等案件问题的批复》不适用于本案。1.该《批复》已失效。《批复》颁布于1996年，《民事案件案由规定》实施于2011年，《中华人民共和国行政诉讼法》及《适用解释》于2015年实施，应当遵照新法优于旧法的原则，上述规定不应再继续适用。且吉春玲等5人一审起诉时《中华人民共和国行政诉讼法》及《解释》已经实施，本案应适用《中华人民共和国行政诉讼法》及《解释》。2.本案的实际情况不符合《最高人民法院关于受理房屋拆迁、补偿、安置等案件问题的批复》第二条的规定。本案中，涉诉行政协议已经履行完毕，吉春玲等5人对房屋补偿、安置的相关标准等并未有争议或提出相应诉讼。二、吉春玲等5人与本案没有利害关系，不具备《中华人民共和国民事诉讼法》第一百一十九条或《中华人民共和国行政诉讼法》第二十五条规定的原告主体资格。涉诉协议双方当事人为卢永安与抱由镇政府，依照合同相对性原则，协议确定的权利义务仅限于协议双方当事人。因卢永安的死亡，该协议依法已经终止，吉春玲等5人即使是卢永安的继承人，在法律允许的范围内也仅享有房屋的使用权。吉春玲等5人并非涉诉协议的当事人，与本案没有利害关系，人民法院也应当据此驳回起诉。综上，吉春玲等5人的上诉请求缺乏事实依据和法律依据，依法应予驳回。
吉春玲等5人向一审法院起诉请求判令：1.抱由镇政府完全履行合同即补足1亩宅基地面积并确定四至范围，以及完成该地四周挡土墙建设；2.抱由镇政府完全履行合同即对安置房屋重新进行维修；3.抱由镇政府支付因迟延交付房屋所产生的补偿费用41000元（暂计至起诉之日，此后补偿金额以500元/月为基础计至抱由镇政府实际交付房屋之日）；4.抱由镇政府赔偿因其违约造成吉春玲等5人支出的经济损失共计57651元。
一审法院认为：根据《中华人民共和国行政诉讼法》第十二条第一款第十一项关于”人民法院受理公民、法人或者其他组织提起的下列诉讼：（十���）认为行政机关不依法履行、未按照约定履行或者违法变更、解除政府特许经营协议、土地房屋征收补偿协议等协议的；”以及《最高人民法院关于适用〈中华人民共和国行政诉讼法〉若干问题的解释》第十一条关于”行政机关为实现公共利益或者行政管理目标，在法定职责范围内，与公民、法人或者其他组织协商订立的具有行政法上权利义务内容的协议，属于行政诉讼法第十二条第一款第十一项规定的行政协议。”的规定，抱由镇政府为建设需要履行征地拆迁的行政职权，与吉春玲等5人签订协议，该协议属行政机关为履行职责实现管理目标与相对人经过协商一致达成的协议，为行政协议。因此，本案应属行政案件受案范围，不属民事案件受案范围，不应作为民事案件予以受理。综上所述，依照《中华人民共和国民事诉讼法》���一百一十九条第一款第四项、第一百五十四条第一款第三项以及《最高人民法院关于适用〈中华人民共和国民事诉讼法〉的解释》第二百零八条第三款的规定，裁定：驳回吉春玲、符惠娥、卢玲玉、卢振、卢周的起诉。
根据一审情况及双方当事人二审诉辩意见，本院归纳本案二审争议焦点为本案纠纷属民事诉讼受案范围还是行政诉讼受案范围。
二审期间，吉春玲等5人就上诉请求提交二审新证据，本院已组织双方当事人进行举证质证。吉春玲等5人提交最高人民法院（2016）最高法行申1899号《行政裁定书》，拟证明本案属民事诉讼，并非行政诉讼。经质证，抱由镇政府对真实性、合法性、关联性及证明内容均有异议。1.判例并非现行法律规定的人民法院审理案件适用的法律渊源；2.吉春玲等5人起诉时新的行政诉讼法及司法解释已经颁布实施；3.涉案协议签订为行政行为的准备；4.证据的真实合法出处无法证明。本院经审查认为，吉春玲等5人提交的《行政裁定书》内容与本案事实无关，不属于民事诉讼证据，不予确认。
本院二审查明，2010年3月28日，抱由镇政府与卢永安（已故）签订《搬迁协议书》，其中约定：一、为支持海南省××县搬迁工作，卢永安同意拆除现居住的3幢瓦房、1间茅草房，总面积850㎡宅基地交由海南省乐东黎族自治县人民政府（以下简称乐东县政府）统一处理。卢永安宅基地上的房屋及青苗经抱由镇政府登记后给予适当补偿，补偿价格按照有关规定执行。二、为妥善安置卢永安，抱由镇政府同意将卢永安二层楼房的安置房建在吉丽霞房屋南边卢发园1亩土地内，建成楼房的同时完成装修、通水通电、防盗门窗（网）安装及挡土墙修建。如3年内房顶漏水、楼房裂口，抱由镇政府负责重修。三、抱由镇政府同意给予卢永安1亩宅基地及宅基地上安置房的稳定使用权，并受法律保护。
2017年3月21日，抱由镇政府出具《抱由镇人民政府信访事项答复吉春玲意见书》（抱函[2017]18号），载明：吉春玲反映，邻居吉丽霞对2010年海南省乐东黎族自治县县城旧城改造时抱由镇政府安置给吉春玲宅基地的交界处提出争议，请求抱由镇政府调解。抱由镇政府核查发现，抱由镇政府按照《搬迁协议书》安置给吉春玲的1亩土地经丈量后确认面积为0.8亩，因无法另行安排0.2亩土地补偿，提出现金补偿方案，但吉春玲不同意，调处无果。
上述事实有《搬迁协议书》及业经质证的《抱由镇人民政府信访事项答复吉春玲意见书》（抱函[2017]18号）在案为证，足资认定。
本院认为，涉案《搬迁协议书》所涉财产包括私有房屋、青苗、宅基地（集体土地），安置补偿相应由按规定价格计得的青苗补偿费、安置房及宅基地组成，即合同内容不仅含房屋，还包括���苗补偿费的计算标准及数额、宅基地的分配等。现吉春玲等5人就《搬迁协议书》的履行与抱由镇政府发生争议，争议内容包括房屋质量、挡土墙修建、所补偿的宅基地面积、四至及与邻居吉丽霞宅基地之间的界线争议。据此，《搬迁协议书》的性质并非房屋拆迁安置补偿合同，本案纠纷亦非房屋拆迁安置补偿合同纠纷，吉春玲等5人所主张的《最高人民法院关于受理房屋拆迁、补偿、安置等案件问题的批复》（法复[1996]12号）因仅针对房屋的拆迁、补偿、安置而不适用于本案。《全国人民代表大会常务委员会关于修改<中华人民共和国行政诉讼法>的决定》与《最高人民法院关于适用<中华人民共和国行政诉讼法>若干问题的解释》（法释[2015]9号）均于2015年5月1日起施行，虽《搬迁协议书》签订于2015年5月1日之前，但《搬���协议书》的实际履行跨越至2015年5月1日之后，且《抱由镇人民政府信访事项答复吉春玲意见书》反映因履行《搬迁协议书》引发的争议亦延续至今，并导致本案诉讼。因此《搬迁协议书》及吉春玲等5人就《搬迁协议书》提起的本案诉讼应依据《中华人民共和国行政诉讼法》第十二条第一款第十一项及《最高人民法院关于适用<中华人民共和国行政诉讼法>若干问题的解释》第十一条的规定认定为行政协议为宜，属行政诉讼受案范围。同时，吉春玲等5人关于确定宅基地面积、四至的诉求无法在民事诉讼中进行处理，其起诉纳入行政诉讼受案范围方更利于全面妥善化解矛盾。另，关于诉讼主体资格的问题与本案二审争议焦点无关，本院不作审查，双方当事人可在行政诉讼中再行主张。
综上，一审裁定适用法律正确，处理结果得当，依照《中华人民共和国民事诉讼法》第一百七十条第一款第一项、第一百七十一条之规定，裁定如下：
驳回上诉，维持原裁定。
一审案件受理费612元，由海南省乐东黎族自治县人民法院退回上诉人吉春玲、符惠娥、卢玲玉、卢振、卢周。
本裁定为终审裁定。
审判长黄心宇
审判员王永政
审判员郭冬燕
二○一七年九月十五日
书记员符莲菲
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23:37:14',0,'web',NULL),(24210427,'47b29eb6-247e-425d-8b9d-a7e800bbf8df','$(function(){$(\"#con_llcs\").html(\"浏览：97次\")});$(function(){var
caseinfo=JSON.stringify({\"法院ID\":\"2214\",\"案件基本情况段原文\":\"\",\"附加原文\":\"\",\"审判程序\":\"刑罚变更\",\"案号\":\"（2017）粤19刑更715号\",\"不公开理由\":\"\",\"法院地市\":\"东莞市\",\"法院省份\":\"广东\",\"文本首部段落原文\":\"\",\"法院区域\":\"\",\"文书ID\":\"47b29eb6-247e-425d-8b9d-a7e800bbf8df\",\"案件名称\":\"韦洁波抢劫罪刑事裁定书\",\"法院名称\":\"广东省东莞市中级人民法院\",\"裁判要旨段原文\":\"\",\"法院区县\":\"\",\"补正文书\":\"2\",\"DocContent\":\"\",\"文书全文类型\":\"1\",\"诉讼记录段原文\":\"广东省普宁市人民法院于2009年9月23日作出（2009）普刑初字第364号刑事判决，以被告人韦洁波犯抢劫罪，判处有期徒刑十四年，剥夺政治权利四年，并处罚金人民币20000元。判决生效后，交付执行。因罪犯韦洁波在服刑期间确有悔改表现，本院先后于2011年10月20日、2013年6月20日、2015年9月25日以（2011）东中法刑执字第2346号、（2013）东中法刑执字第1188号、（2015）东中法刑执字第1247号刑事裁定，分别对其减去有期徒刑一年一个月、一年六个月、八个月。刑期执行至2020年2月5日。
执行机关广东省东莞监狱于2017年5月22日以罪犯韦洁波在服刑期间确有悔改表现为由，提出减刑建议，并于2017年5月27日报送本院审理。本院于2017年5月31日立案，并依法组成合议庭，对本案进行了开庭审理。本院于审理期间依法延长本案的审理期限一个月，现已审理终结\",\"判决结果段原文\":\"\",\"文本尾部原文\":\"\",\"上传日期\":\"\\\/Date(1504800000000)\\\/\",\"案件类型\":\"1\",\"诉讼参与人信息部分原文\":\"\",\"文书类型\":null,\"裁判日期\":null,\"结案方式\":null,\"效力层级\":null});$(document).attr(\"title\",\"韦洁波抢劫罪刑事裁定书\");$(\"#tdSource\").html(\"韦洁波抢劫罪刑事裁定书
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[{法规名称:\'《中华人民共和国刑法》\',Items:[{法条名称:\'第七十八条第一款\',法条内容:\' 第七十八条
被判处管制、拘役、有期徒刑、无期徒刑的犯罪分子，在执行期间，如果认真遵守监规，接受教育改造，确有悔改表现的，或者有立功表现的，可以减刑；有下列重大立功表现之一的，应当减刑：
（一）阻止他人重大犯罪活动的；
（二）检举监狱内外重大犯罪活动，经查证属实的；
（三）有发明创造或者重大技术革新的；
（四）在日常生产、生活中舍己救人的；
（五）在抗御自然灾害或者排除重大事故中，有突出表现的；
（六）对国家和社会有其他重大贡献的。
减刑以后实际执行的刑期不能少于下列期限：
（一）判处管制、拘役、有期徒刑的，不能少于原判刑期的二分之一；
（二）判处无期徒刑的，不能少于十三年；
（三）人民法院依照本法第五十条第二款规定限制减刑的死刑缓期执行的犯罪分子，缓期执行期满后依法减为无期徒刑的，不能少于二十五年，缓期执行期满后依法减为二十五年有期徒刑的，不能少于二十年。
\'},{法条名称:\'第七十八条第一款\',法条内容:\'
第七十八条
被判处管制、拘役、有期徒刑、无期徒刑的犯罪分子，在执行期间，如果认真遵守监规，接受教育改造，确有悔改表现的，或者有立功表现的，可以减刑；有下列重大立功表现之一的，应当减刑：
（一）阻止他人重大犯罪活动的；
（二）检举监狱内外重大犯罪活动，经查证属实的；
（三）有发明创造或者重大技术革新的；
（四）在日常生产、生活中舍己救人的；
（五）在抗御自然灾害或者排除重大事故中，有突出表现的；
（六）对国家和社会有其他重大贡献的。
减刑以后实际执行的刑期，判处管制、拘役、有期徒刑的，不能少于原判刑期的二分之一；判处无期徒刑的，不能少于十年。
\'},{法条名称:\'第七十九条\',法条内容:\'
第七十九条
对于犯罪分子的减刑，由执行机关向中级以上人民法院提出减刑建议书。人民法院应当组成合议庭进行审理，对确有悔改或者立功事实的，裁定予以减刑。非经法定程序不得减刑。
\'}]},{法规名称:\'《中华人民共和国刑事诉讼法（2012年）》\',Items:[{法条名称:\'第二百六十二条第一款\',法条内容:\'
第二百六十二条罪犯在服刑期间又犯罪的，或者发现了判决的时候所没有发现的罪行，由执行机关移送人民检察院处理。
被判处管制、拘役、有期徒刑或者无期徒刑的罪犯，在执行期间确有悔改或者立功表现，应当依法予以减刑、假释的时候，由执行机关提出建议书，报请人民法院审核裁定，并将建议书副本抄送人民检察院。人民检察院可以向人民法院提出书面意见。
\'}]}]};if
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