海南省高级人民法院
p t ; ” > 行 政 赔 偿 裁 定 书
（2017）琼行赔终166号
上诉人（一审原告）海南三叶制药厂有限公司，住所地海口市海垦路。
法定代表人谭伟雄，该厂董事长。
委托代理人周亚敏，海南广哲律师事务所律师。
委托代理人朱美如，海南广哲律师事务所律师。
被上诉人（一审被告）口市人民政府，住所地海口市长滨路市政府第二行政办公区。
法定代表人倪强，该市市长。
委托代理人杨敏杰，该市人民政府法律顾问。
委托代理人郭刻盛，海南瑞来律师事务所律师。
海南三叶制药厂有限公司（以下简称三叶公司）因诉海口市人民政府（以下简称市政府）行政赔偿纠纷一案，不服海南省海口市中级人民法院作出的（2016）琼01行赔初12号行政赔偿判决，向本院提出上诉，本院受理后，依法组成合议庭进行了审查，并于2017年11月2日公开开庭进行了审理。三叶公司的委托代理人周亚敏、市政府的委托代理人杨敏杰、郭刻盛到庭参加诉讼。本案现已审理终结。
三叶公司上诉称：1.一审判决以三叶公司未能举证证明对涉案土地享有合法权益，驳回三叶公司的诉讼请求，明显认定事实错误。原保税区旁的涉案土地原为三叶公司拥有，市政府长达十三年之久未为三叶公司办理土地使用证或办理补偿事宜，为了解决该宗土地的使用权问题，三叶公司依法提出行政复议申请。海南省人民政府经过审理，作出琼府复决（2012）第202号、203号行政复议决定，认定三叶公司的涉案土地包含在市政府为第三人海南新建桥经济发展有限公司（以下简称新建桥公司）颁发的海口市国用（2009）第011080号、011078号土地使用证范围内，并确认市政府该具体行政行为违法。后新建桥公司不服该决定，向人民法院提起行政诉讼。海南省高级人民法院最终作出（2015）琼刑终字第226、227号行政判决，不仅确认了市政府为新建桥公司颁发海口市国用（2009）第011080号、011078号土地使用权证（以下简称011080号、011078号土地证）的具体行政行为违法，还明确确认”农垦橡胶厂对争议地享有权属”，海南省高级人民法院的上述生效判决可以作为定案依据，原审判决认定三叶公司未举证证明对涉案土地享有权属与海南省高级人民法院认定的上述事实相悖，属认定事实错误。2.原审判决程序违法。在一审庭审中，归纳的争议焦点并没有包括三叶公司是否享有争议地的权属，但一审判决却人为制造出”并未举证证明享有权益”的焦点问题，程序违法。另外，一审法院已经对涉案土地的价值进行评估，三叶公司按规定缴纳了3万元的评估费，原审法院在没有告知评估程序终止的情况下，直接驳回三叶公司的诉讼请求，严重违反法定程序。三叶公司缴纳的鉴定费用也不知去向。3.原审判决适用《最高人民法院关于审理行政赔偿案件若干问题的规定》第33条的规定，认为三叶公司未举证证明对涉案土地享有合法权益，市政府的行政行为尚未对三叶公司的合法权益造成损害，进而驳回三叶公司的诉讼请求，适用法律错误。三叶公司的赔偿请求是根据海南省政府复决（2012）202号、203号行政复议决定及及海南省高级人民法院（2015）琼行终字第226、227号生效判决确认的事实提起，有充分的事实和法律依据。综上，原审判决认定事实、适用法律错误，程序违法，请求二审法院支持三叶公司的全部诉讼请求。
市政府提交答辩意见称：1.三叶公司提起行政赔偿不符合国家标准赔偿法的规定，依法不应支持，原审判决结果正确，依法应予维持。三叶公司诉称的822平方米的土地使用权分别位于011078号、011080号土地证范围内，面积分别为541.15平方米和272.9平方米。现土地使用权人为新建桥公司。上述两宗土地使用权系分别经过一系列的土地出让、转让、合作、土地用途改变而发生变更登记。上述一系列行为的过程中，三叶公司主张土地证违法的理由无非是1992年的时候，市政府征收农垦橡胶厂的土地没有支付征地补偿款，且经过复议、行政诉讼认定目前没有证据证明市政府支付过该项征地补偿款。从上述争议可见，三叶公司其实是认为市政府于1992年征收农垦橡胶厂的土地没有支付征地补偿款的行为侵犯其合法权利。行政复议和行政诉讼确认市政府011078号、011080号土地证违法的理由也是基于市政府没有充分证据证明1992年征地时向农垦橡胶厂支付过征地补偿款。从上述事实来看，对三叶公司产生影响的是1992年的征地行为，而非基于改变土地用途而变更登记核发011078、011080号土地证的行为。换言之，与三叶公司损害结果存在因果关系的行政行为是1992年的征地行为，而不是核发011078、011080号土地证的行为。征地行为与土地登记行为属于两个分别独立的行政行为，而1992年的征地行为至今尚未有生效的法律文书确认违法。现三叶公司以确认011078、011080号土地证违法的行政复议决定主张1992年征地行为对其造成的损害进行国家赔偿，不符合国家赔偿法的规定。另外，虽然国家赔偿法已经明确规定征收行为造成损害的属于赔偿事由，但1992年的征地行为，至今已远远超过了最长二十年的起诉期限，三叶公司贻于主张权利，其赔偿请求不应得到法律的支持。三叶公司没有证据证明其损害系市政府为新建桥公司颁发011078、011080号土地证的行为所造成，一审判决包括其诉讼请求符合法律规定，判决结果正确，依法应予维持。2.三叶公司主张的国家赔偿计算方式也不符合法律规定，涉案宗地最初划入海口市保税区建设用地范围时为工业用地，所在因第三人开发建设”幸福城”项目导致土地增值部分的价值不应作为行政赔偿的范围。综上，三叶公司并未提交任何证据证明其对涉案争议地有权属的证据，依法应当驳回其上诉，维持原判；即便要进行赔偿，三叶公司的赔偿计算方式明显有误，依法不应予以支持。
二审查明，本院于2015年12月1日作出（2015）琼行终226、227号行政判决，两判决均载明：”根据三叶公司提交的1977年12月农垦橡胶厂地形图、1996年10月11日路网规划图，并结合1985年8月17日的《土地问题补偿协议书》、1994年的规划报建图等，可以证明农垦橡胶厂原对争议地享有权属，1998年三叶公司承接了农垦橡胶厂的全部土地及其权利义务，自此亦取得了对争议地的权利”。
本院认为，本案应查明的基本事实是三叶公司是否对涉案土地享有权属及三叶公司的损失情况。首先，《最高人民法院关于行政诉讼证据若干问题的规定》第七十条规定：”生效的人民法院裁判文书或者仲裁机构裁决文书确认的事实，可以作为定案依据。但是如果发现裁判文书或裁决文书认定的事实有重大问题的，应当中止诉讼，通过法定程序予以纠正后恢复诉讼”。三叶公司以海南省政府作出的琼府复决（2012）202、203号复议决定和本院作出的（2015）琼行终226、227号行政判决为基础提出本案行政赔偿之诉，其中本院作出的（2015）琼行终226、227号行政判决明确认农垦橡胶厂原对争议地享有权属，1998年三叶公司承接了农垦橡胶厂的全部土地及其权利义务，自此亦取得了对争议地的权利。原审判决在没有新的事实和证据的情况下，认定三叶公司未能举证证明其对涉案地享有合法权益，违反了上述规定，导致该项基本事实认定不清。其次，原审法院委托鉴定机构对涉案土地的价值进行鉴定后又终止鉴定，导致三叶公司的损失情况不明，该项基本事实认定不清。综上，原审判决认定基本事实不清，依照《中华人民共和国行政诉讼法》第八十九条第一款第（三）项、第（四）项的规定，裁定如下：
一、撤销海南省海口市中级人民法院作出的（2016)琼01行赔初12号行政赔偿判决；
二、发回海南省海口市中级人民法院重审。
审判长唐进
审判员王鉴
审判员贺莺
二〇一七年十一月十五日
书记员魏克帅
《中华人民共和国行政诉讼法》
第八十九条人民法院审理上诉案件，按照下列情形，分别处理：
（一）原判决、裁定认定事实清楚，适用法律、法规正确的，判决或者裁定驳回上诉，维持原判决、裁定；
（二）原判决、裁定认定事实错误或者适用法律、法规错误的，依法改判、撤销或者变更；
（三）原判决认定基本事实不清、证据不足的，发回原审人民法院重审，或者查清事实后改判；
（四）原判决遗漏当事人或者违法缺席判决等严重违反法定程序的，裁定撤销原判决，发回原审人民法院重审。
原审人民法院对发回重审的案件作出判决后，当事人提起上诉的，第二审人民法院不得再次发回重审。
人民法院审理上诉案件，需要改变原审判决的，应当同时对被诉行政行为作出判决。
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