海南省高级人民法院
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（2017）琼行赔终39号
上诉人（一审原告）保亭黎族苗族自治县什玲镇什玲村民委员会什玲一经济合作社。
法定代表人黄向朋，该社社长。
上诉人（一审原告）保亭黎族苗族自治县什玲镇什玲村民委员会什玲二经济合作社。
法定代表人王志海，该社社长。
上诉人（一审原告）保亭黎族苗族自治县什玲镇什玲村民委员会新村一经济合作社。
法定代表人王召京，该社社长。
上诉人（一审原告）保亭黎族苗族自治县什玲镇什玲村民委员会新村二经济合作社。
法定代表人黄育春，该社社长。
上诉人（一审原告）保亭黎族苗族自治县什玲镇什玲村民委员会道果经济合作社。
法定代表人黄烈，该社社长。
上列五上诉人的共同委托代理人王小英，海南昌宇律师事务所律师。
被上诉人（一审被告）保亭黎族苗族自治县人民政府。住所地保亭黎族苗族自治县保城镇新民路。
法定代表人符兰平，该县县长。
委托代理人符兴政，保亭黎族苗族自治县国土资源局干部。
委托代理人李林泽，海南天皓律师事务所律师。
保亭黎族苗族自治县什玲镇什玲村民委员会什玲一经济合作社、保亭黎族苗族自治县什玲镇什玲村民委员会什玲二经济合作社、保亭黎族苗族自治县什玲镇什玲村民委员会新村一经济合作社、保亭黎族苗族自治县什玲镇什玲村民委员会新村二经济合作社、保亭黎族苗族自治县什玲镇什玲村民委员会道果经济合作社（该五上诉人以下共同简称五上诉人）因诉保亭黎族苗族自治县人民政府（以下简称保亭县政府）行政赔偿纠纷一案，不服海南省第一中级人民法院作出的（2017）琼96行赔初8号行政赔偿判决，向本院提出上诉。本院受理后，依法组成了合议庭，并于2017年8月29日公开开庭审理了本案。五上诉人的法定代表人黄向朋、王志海、王召京、黄育春、黄烈、及其委托代理人王小英、保亭县政府的委托代理人李林泽、符兴政到庭参加诉讼。本案现已审理终结。
一审法院认定：涉案土地面积为60亩。2004年，保亭县政府将位于××县委会大洋坡的五上诉人共有宗地给五上诉人分别颁发五份集体土地所有证，证号为保集有（2004）字第517至521号，面积合计152.75亩。涉案土地在上述共有宗地范围内。2004年12月30日，保亭县政府函复同意保亭大山公司在保亭黎族自治县什玲镇什玲河兴建漂流农家乐项目。2005年6月27日，五上诉人分别与保亭大山公司签订了《农村集体土地使用权承包合同书》，共同将位于什玲村委会大洋坡的土地发包给保亭大山公司，面积共133亩（含涉案土地），承包期限从2005年7月1日至2027年7月1日。2005年12月10日和2006年1月10日，保亭县政府两次发布挂牌交易公告，拟将征收的涉案土地挂牌出让。2005年12月29日，海南省国土厅作出《关于调整什玲漂流农家乐度假项目用地土地利用规划的复函》，同意将该项目拟占用什玲镇桥头4公顷的未利用地调整为旅游设施建设用地。2006年1月12日，保亭县政府向海南省人民政府（以下简称海南省政府）请示，拟征收巡亲村委会什当、新坡二个村民小组集体土地合计0.42公顷；什玲村委会新村等5个村民小组集体土地3.58公顷；其土地补偿费每亩4200元，安置补助费每亩3600元。该地拟作为农家乐旅游项目用地，采取挂牌方式出让。2006年4月13日，海南省国土厅作出琼土环资函（2006）108号《关于保亭县什玲漂流农家乐度假项目用地征收及挂牌交易手续的复函》，该批复主要内容是：同意保亭县政府征收什玲镇什玲村委会及巡亲村委会什当、新坡、新村等村民小组集体所有土地4公顷（未利用地），并采取挂牌方式出让作为什玲漂流农家乐度假项目建设用地，土地用途为旅游用地。同时要求保亭县政府依照法定程序和已批准的《征收土地方案》实施征地，并与被征地单位签订《征收土地补偿协议书》。落实征收土地的各项补偿，及时兑现征收土地补偿各项费用。另外，同意保亭县政府与其国土部门拟订的《建设项目用地供地方案》和《关于什玲漂流农家乐度假村项目建设用地挂牌交易方案》。庭审中，保亭县政府承认其申请报批征收的土地单位有误，实际报批征收的4公顷土地全部是五上诉人的集体土地。保亭县政府未与五上诉人办理相关征地手续，直接征收涉案土地。2006年4月19日，通过挂牌拍卖，保亭大山公司竞得涉案土地。2006年5月26日，保亭县政府就涉案土地给保亭大山公司颁发20号国土证。2009年9月26日，保亭大山公司与第三人签订《土地使用权转让合同》，将涉案土地转让给第三人。2010年3月5日，被告给第三人颁发08号国土证。五上诉人不服，遂于2016年向本院提起行政诉讼，请求撤销08号国土证，业经法院生效裁定，以人超过起诉期限为由驳回五上诉的起诉。关于保亭县政府征收涉案60亩土地的行政行为，五上诉人在向本院提起行政诉讼的同时一并提起本案的赔偿诉讼，请求确认亭县政府征收涉案60亩土地的行政行为违法，并赔偿其600万元的损失。原审法院已作出（2017）琼96行初38号行政判决，确认保亭县政府征收涉案土地的行政行为违法。
一审法院另查明，2008年，保亭大山公司在涉案土地上建起漂流项目的附属设施建筑。
一审法院认为，关于五上诉人提起行政赔偿诉讼是否符合法定的起诉条件的问题。保亭县政府作出征收涉案土地的行政行为已被确认违法，五上诉人可以据此提起行政赔偿诉讼。而对于五上诉人的起诉期限，由于本案属于提起行政诉讼的同时一并提起行政赔偿请求，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》第二十三条第一款、《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》第四十一条第一款的规定，五上诉人于2016年知道保亭县政府的征地行为，五上诉人据此提起赔偿请求未超过法定的起诉期限。关于保亭县政府是否应当赔偿五上诉人损失的问题。根据《中华人民共和国土地管理法》第四十七条第一款”征收土地的，按照被征收土地的原用途给予补偿”的规定。保亭县政府征收五上诉人的集体土地，应当向五上诉人支付征地补偿款和安置补助费。但保亭县政府至今未予支付，应当赔偿五上诉人的损失。根据海南省政府当时批复的相关征地补偿标准，土地补偿款为每亩4200元，安置补助费为每亩3600元。因此，保亭县政府应赔偿五上诉人涉案60亩土地的土地补偿款和安置补助费分别为252000元、216000元共计468000元。并应支付相应的利息，利息按贷款利率计算。本案中，被告于2005年12月10日发布挂牌公告，应作为保亭县政府征收涉案土地的具体时间，即利息起算时间。因此，保亭县政府应从2005年12月10日起支付利息。综上，五上诉人起诉符合法定条件，其请求赔偿应给予部分支持。依照《中华人民共和国国家赔偿法》第二条第一款之规定，判决：保亭黎族苗族自治县人民政府应在本判决送达之日起30日内向原告保亭黎族苗族自治县什玲镇什玲村民委员会什玲一经济合作社、什玲二经济合作社、新村一经济合作社、新村二经济合作社、道果经济合作社赔偿涉案60亩土地的土地补偿款和安置补助费共计468000元并支付利息（利息按中国人民银行规定同期一年期一般流动资金贷款基准利率计算，利息自2005年12月10日起计算，至本息实际支付完毕止）。
五上诉人上诉称：1.原审判决判被上诉人赔偿五上诉人土地补偿款和安置补助费468000元，没有事实依据。原审判决依据2006年4月13日海南省国土环境资源厅琼土环资函（2006）108号《关于保亭县什玲漂流农家乐度假项目用地征收局挂牌交易手续的复函》，认定土地补偿款每亩4200元，安置补助费每亩3600元是错误的。因为依据该复函最后一条规定：”是用地批准文件下发之日起，两年内未用地或未实施征地补偿安置的，批准文件自动失效。”被上诉人未与五上诉人签订征用土地协议，至今未支付上五诉人任何征地补偿款，建设方保亭大山旅业发展有限责任公司拿到该地后，两年内也没有开发建设，因此该批准文件已经自动失效。原审判决依据该事项的批复文件确定征地补偿标准，缺乏事实依据。2.根据《中华人民共和国国家赔偿法》第三十六条第（四）项之规定：”侵犯公民、法人和其他组织的财产权造成损害的，按照上列规定处理：......（五）财产已经拍卖或者变卖的，给付拍卖或者变卖所得的价款；变卖的价款明低于财产价值的，应当支付相应的赔偿金。”2006年10月19日，被上诉人未与五上诉人办理相关征地手续，直接将上诉人60亩集体土地拍卖给保亭大山旅业发展有限公司，获利205.56万元。被上诉人应当按照土地拍卖价205.56万元赔偿上诉人，并支付相应的存款利息113.058万元，两项合计318.618万元。综上，五上诉人依法提出上诉，请二审法院支持。
保亭县政府的答辩意见为，一审判决判认定事实清楚，适用法律正确，判被上诉人赔偿46.8万元及其利息正确。2006年被上诉人征收五上诉人的集体土地为未利用地，不具备出让条件，被上诉人拍卖时该地是国有建设旅游用地，拍卖价款包含了土地一级开发费和国有土地出让金，被上诉人通过整体规划使同一块土地的性质和价值发生了变化，五上诉人请求按205.56万元赔偿其原未利用集体土地的损失没有法律和事实依据。请求二审法院驳回其上诉，维持原判。
二审审理查明的事实与一审审理查明的事实一致，本院予以确认。
本院认为，保亭县政府在未与五上诉人签订征用土地协议、未支付上五诉人任何征地补偿款的情况下便将五上诉人共同所有的60亩涉案集体土地拍卖出让，损害了五上诉人的合法权益，给五上诉人造成的损失依法应当赔偿。本案的争议焦点是如何确定赔偿标准的问题。根据已查明的事实，涉案土地原为五上诉人所有的集体农业用地。集体所有的农用地不能直接上市交易，无市场价作为参照。一审法院参照海南省国土环境资源厅琼土环资函（2006）108号《关于保亭县什玲漂流农家乐度假项目用地征收局挂牌交易手续的复函》中确定的同时期同类型相邻地块的征地补偿标准确定本案涉案地的赔偿标准，即60亩涉案土地的土地补偿款为每4200元、安置补助费为每亩3600元并无不当。至于五上诉人提出的应以205.56万元的拍卖价确定本案的赔偿金的上诉理由，涉案土地原为集体所有的农用地，被拍卖时为国有建旅游用地，虽为同一块地，但集体所有农用的地价值与保亭县政府经过规划、基础设施配套、确定用地类型后拍卖的国有建设旅游用地的价值不能等同，五上诉人提出的该项诉理由与客观事实不符，本院不予支持。
综上，原审判决认定事实清楚，适用法律正确，处理结果并无不当，五上诉人的上诉理由均不能成立。依据《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。
本判决为终审判决。
审判长唐进
审判员王鉴
审判员童琦
二〇一七年十二月二十九日
书记员魏克帅
附：相关法律条文。
《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。
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