海南省万宁市人民法院
p t ; ” > 行 政 裁 定 书
（2016）琼9006行赔初10号
原告王瑜，女，1962年07月10日出生，汉族，现住北京市朝阳区。
委托代理人李洪旗，男，1958年07月28日出生，汉族，现住北京市朝阳区，系原告王瑜的丈夫。
被告万宁市住房保障与房产管理局。
法定代表人陈儒平，局长。
委托代理人陈潜，被告单位市场股工作人员。
委托代理人薛彩云，海南昌宇律师事务所律师。
第三人海南鑫东源旅业有限公司。
法定代表人王小玲，董事长。
原告王瑜因被告万宁市住房保障与房产管理局（以下简称”万宁市房管局”）于2013年5月7日对第三人海南鑫东源旅业有限公司（以下简称”鑫东源公司”）作出的[2013]万房预字（延28）号万宁市房产预售许可证（以下简称”房产预售许可证”）而请求行政赔偿一案，本院立案后，依法组成合议庭，公开开庭进行了审理，现已审理终结。
原告王瑜诉称，万宁市房管局颁发[2013]万房预字（延28）号万宁市房产预售许可证（以下简称”房产预售许可证”）的行政违法行为，使申请人在许可证有效期内，全额所购房屋不仅不能登记备案和占有，还遭遇累累官司，并已形成608350元的购房损失。为追回损失聘请律师和多处调查收集证据等支付其他费用五万元，两项合计658350元。根据《中华人民共和国行政许可法》第七条规定：”公民、法人或者其他组织对行政机关实施行政许可，享有陈述权、申辩权；有权依法申请行政复议或者提起行政诉讼；其合法权益因行政机关违法实施行政许可受到损害的，有权依法要求赔偿。”根据《中华人民共和国国家赔偿法》第三十六条规定；”侵犯公民、法人或其他组织的财产造成损害的，按照下列规定处理：......对财产权造成其他损害的，按照直接损失给予赔偿。”等有关规定，请求法院依法判令被告万宁市房管局赔偿原告王瑜直接经济损失658350元。
经审理查明，2011年3月10日，第三人鑫东源公司将坐落万宁市兴隆旅游区温泉大道内进国有土地使用权证号分别为万国用（2000）字第0190040号、万国用（2011）字第500002号、万国用（2011）字第500003号共三宗地合并为一宗地，面积共12550平方米，并办理万国用（2011）第500004号《国有土地使用证》。在《国有土地使用证》办理前后，鑫东源公司办理了《建设用地规划许可证》和《建筑工程施工许可证》，并于2011年4月26日与广东宏昌建设工程有限公司签订《建设工程施工合同》，约定2011年5月5日开工，着手建设”忆云山水产权式温泉假日酒店”项目。2011年10月27日，在该项目完成65%主体工程量后，鑫东源公司按照《城市商品房预售管理办法》的有关规定，向被告提交《商品房预售许可申请审批表》、《营业执照》及资质证书、《国有土地使用证》、《建设用地规划许可证》、《建筑工程施工许可证》、实际投入资金占工程总投资比例证明、施工合同及施工进度的说明、商品房预售方案等有关材料，申请办理万宁市商品房预售许可证，申请预售房屋142套。被告在《万宁市商品房预售许可申请审批表》中明确同意核发证号为[2011]万房预字（40）号《万宁市商品房预售许可证》，但2011年11月2日，被告实际核发了《万宁市房产预售许可证》，有效期自2011年11月2日至2012年5月2日，审批同意预售130套。以后的[2012]万房预字（延31）号和[2013]万房预字（延28）号预售许可证，被告在《万宁市商品房预售许可延期申请审批表》中审批同意核发《万宁市商品房预售许可证》，但实际均核发房产预售许可证而不是商品房预售许可证。鑫东源公司在[2011]万房预字（40）号房产预售许可证核发后仅售出8套房屋，还剩下122套未售出，所以在[2011]万房预字（40）号房产预售许可证有效期届满后，鑫东源公司于2012年5月16日重新提供有关材料，向被告申请办理商品房预售许可延期。2012年5月21日，被告核发[2012]万房预字（延31）号房产预售许可证给鑫东源公司，同意预售房屋122套，有效期自2012年5月21日至2012年11月21日。2013年4月24日，鑫东源公司第二次申请办理商品房预售许可延期，鑫东源公司申请时，向被告提供了商品房预售许可延期申请审批表、企业法人营业执照、组织机构代码证、税务登记证、法定代表人身份证明、公司章程、暂定资质证书、《国有土地使用证》、《建设用地规划许可证》、《建筑工程施工许可证》、施工合同、忆云山水产权式温泉假日酒店已完成施工进度和工程实际投放资金证明、开户许可证、商品房预售方案和预售房屋分户平面图、房屋建筑面积测绘报告、担保函等，被告经审核后，于2013年5月7日核发[2013]万房预字（延28）号房产预售许可证给第三人鑫东源公司，同意预售的房屋为118套。但由于其中110套抵押给海口海控小额贷款有限公司和三亚市农村信用合作联社，被告所以在[2013]万房预字（延28）号房产预售许可证上注明”该项目已设定抵押建筑面积7032.82平方米，共110套”。2013年12月20日，原告与鑫东源公司签订《商品房预售合同》、《产权房委托装修装饰合同》和《委托经营合同》，支付购房款526546元，装修费164760元，扣除委托经营两年收益82956元，实际支付608350元，购买了忆云山水产权式温泉假日酒店1号楼A幢506房。2015年12月28日，被告向原告发出万房告字（2015年）8号《关于忆云山水产权式温泉假日酒店1号楼A幢506房预售合同情况告知书》，原告才知道所购房屋已被鑫东源公司用以抵押贷款。之后，原告又从其他业主处得知被告颁发给鑫东源公司[2013]万房预字（延28）号房产预售许可证，认为就因为被告颁发该房产预售许可证给鑫东源公司，鑫东源公司利用这张房产预售许可证，以合同诈骗的方式，肆无忌惮的进行”一房多卖”，造成原告全款所购房屋出现被查封执行致使原告无法拥有。原告因此提出行政诉讼，请求本院：1、依法判决被告颁发的房产预售许可证是行政违法行为并给予撤销。2、本案诉讼费用由被告承担。原告在提出行政诉讼的同时，一并提出行政赔偿诉讼，认为因被告颁发房产预售许可证给第三人鑫东源公司，造成原告全额所购房屋不仅不能登记备案和占有，还遭遇累累官司，并已形成608350元的购房损失。另外，为追回损失聘请律师和多处调查收集证据等支付其他费用五万元，两项合计658350元，要求被告万宁市房管局予以行政赔偿。
本院认为，依据《中华人民共和国行政诉讼法》第二十五条第一款规定”行政行为的相对人以及其他与行政行为有利害关系的公民、法人或者其他组织、有权提起诉讼”。《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》第十二条规定”与具体行政行为有法律上利害关系的公民、法人或者其他组织对行政行为不服的，可以依法提起诉讼”。上述法律条文规定，原告首先必须是行政行为的相对人。其次，与行政行为有法律上利害关系的公民、法人或其他组织也可以作为原告有权提起诉讼。但是，这里所述的”与行政行为有法律上利害关系”，是指公民、法人或其他组织在行政行为作出时就与该行政行为有法律上利害关系，公民、法人或其他组织在行政行为作出时与该行政行为没有法律上利害关系，这些公民、法人或其他组织显然是无权提起诉讼的。结合本案事实，2013年4月24日，鑫东源公司申请办理商品房预售许可延期,申请时向被告提供了商品房预售许可延期申请审批表、企业法人营业执照、组织机构代码证、税务登记证、法定代表人身份证明、公司章程、暂定资质证书、《国有土地使用证》、《建设用地规划许可证》、《建筑工程施工许可证》、施工合同、忆云山水产权式温泉假日酒店已完成施工进度和工程实际投放资金证明、开户许可证、商品房预售方案和预售房屋分户平面图、房屋建筑面积测绘报告、担保函等材料，被告经审核后，于2013年5月7日核发[2013]万房预字（延28）号房产预售许可证给第三人鑫东源公司，同意预售的房屋为118套。2013年12月20日，原告与鑫东源公司签订《商品房预售合同》、《产权房委托装修装饰合同》和《委托经营合同》，并且支付完购房款购买了忆云山水产权式温泉假日酒店1号楼A幢506房。本案是被告先就包括涉案房屋在内共118套房屋作出[2013]万房预字（延28）号房产预售许可证，同意鑫东源公司预售，原告之后才与鑫东源公司签订购房合同购买涉案房屋。被告在作出房产预售许可证时，房屋仍未销售，房产预售许可证作出时与原告没有法律上的利害关系，即原告不具有诉讼的主体资格。
综上所述，依据《中华人民共和国行政诉讼法》第二十五条第一款、最高人民法院关于适用《中华人民共和国行政诉讼法》若干问题的解释第三条第一款第（八）项规定，裁定如下：
驳回原告王瑜的起诉。
如不服本裁定，可在裁定书送达之日起十日内，向本院递交上诉状，并按对方当事人的人数提出副本，上诉于海南省第一中级人民法院。
审判长王德清
审判员翁雪花
人民陪审员卓飞
二〇一七年四月二十日
书记员叶高飞
附：本案适用的法律条文：
《中华人民共和国行政诉讼法》
第二十五条行政行为的相对人以及其他与行政行为有利害关系的公民、法人或者其他组织，有权提起诉讼。
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
第三条有下列情形之一，已经立案的，应当裁定驳回起诉：
（八）行政行为对其合法权益明显不产生实际影响的。
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