海南省高级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼行终1226号
海南省高级人民法院
行政判决书
（2017）琼行终1226号
上诉人（原审原告）邢诒仁，男，1972年11月10日出生，汉族，现住三亚市。
被上诉人（原审被告）三亚市人民政府，住所地三亚市新风街257号。
法定代表人吴岩峻，该市市长。
委托代理人郑大平，三亚市法制办公室工作人员。
被上诉人（原审被告）三亚市天涯区人民政府，住所地三亚市凤凰路319号。
法定代表人江雄标，该区区长。
委托代理人侯孝发，海南三和元律师事务所律师。
上诉人邢诒仁因其诉被上诉人三亚市人民政府（以下简称三亚市政府）、三亚市天涯区人民政府（以下简称天涯区政府）房屋行政征收一案，不服海南省三亚市中级人民法院（2017）琼02行初11号行政判��，向本院提起上诉。本院依法组成合议庭，对本案进行了审理。本案现已审理终结。
2016年6月27日，邢诒仁与天涯区政府签订了《三亚市金鸡岭四组片区棚户区危房改造项目房屋征收货币安置协议》，因天涯区政府未给付其搬迁奖励款8万元，邢诒仁不服，诉至原审法院，请求：天涯区政府依三亚市政府2015年9月30日下发的三府办〔2015〕263号《三亚市人民政府办公室关于印发三亚市金鸡岭四组片区棚户区危房改造征收补偿安置方案的通知》（以下简称263号文件），履行给予邢诒仁8万元征收搬迁奖励的义务。
原审查明，三亚市政府2015年9月30日下发263号文件，其中第八条规定，被征收人在2015年10月25日前签订房屋征收安置协议并搬迁腾空房屋的，一次性给予人民币8万元/户的奖励。天涯区政府在实施征收工作过程中，以”被征收人在2015年10月25日前签订三亚市金鸡岭四组片区棚户区危房改造项目拟房屋征收补偿安置协议并搬迁腾空房屋的”，作为给予人民币8万元/户奖励的条件。因邢诒仁认为”拟房屋征收补偿安置协议”不具有法律效力，不予签订。至2016年6月27日，天涯区政府出具正式协议后，邢诒仁才与天涯区政府签订了���亚市金鸡岭四组片区棚户区危房改造项目房屋征收货币安置协议。该协议第四条第（一）项约定：乙方（被拆迁人）在2015年10月25日前签订三亚市金鸡岭四组片区棚户区危房改造项目拟房屋征收货币安置协议并搬迁腾空房屋的，一次性给予人民币8万元/户的奖励；第（二）项约定：乙方（被拆迁人）在2015年10月26日至2015年11月11日内签订三亚市金鸡岭四组片区棚户区危房改造项目拟房屋征收货币安置协议或本协议并搬迁腾空房屋的，一次性给予人民币5万元/户的奖励；第（三）项约定：乙方（被拆迁人）超过2015年11月11日后签订三亚市金鸡岭四组片区棚户区危房改造项目房屋征收货币安置协议并搬迁腾空房屋的，一律不给予任何货币奖励。同日，邢诒仁在安置奖励款额为零的房屋综合补偿表上进行签字确认。后因邢诒仁对天涯区政府不给予其8万元/户的搬迁奖励款发生争议，向相关部门报告要求处理。2016年12月12日邢诒仁向三亚市政府申请行政复议，三亚市政府2016年12月15日作出三府复不字[2016]27号不予受理决定书，决定不予受理邢诒仁的复议申请。
原审认为，搬迁奖励款不属房屋征收必须补偿项目，而是征收人为了推进征收工作，对符合条件的被征收人给予的奖励。虽然三亚市政府2015年9月30日下发的263号文件第八条”被征收人在2015年10月25日前签订房屋征收安置协议并搬迁腾空房屋的，一次性给予人民币8万元/户的奖励”中的”房屋征收安置协议”是指正式协议。但天涯区政府根据实际征收工作的需要，在不具备正式签约条件的情形下，以”在2015年10月25日前签订三亚市金鸡岭四组片区棚户区危房改造项目拟房屋征收货币安置协议并搬迁腾空房屋的，一次性给予人民币8万元/户的奖励”作为奖励的条件。也就是以先行签订拆迁意向书的方式，作为给予被征收人奖励的条件，其目的也是为了激励被征收人主动配合征收工作，其所附条件并无不当。由于邢诒仁拒绝先行签订拆迁意向书（即”拟房屋征收货币安置协议”），故不具备奖励的条件。且邢诒仁与天涯区政府在2016年6月27日签订的《三亚市金鸡岭四组片区棚户区危房改造项目房屋征收货币安置协议》第四条第（三）项也作出了”乙方（被拆迁人）超过2015年11月11日后签订三亚市金鸡岭四组片区棚户区���房改造项目房屋征收货币安置协议并搬迁腾空房屋的，一律不给予任何货币奖励”的约定，该协议约定内容并不违反法律、法规的强制性规定，合法有效。因邢诒仁没有提供有效证据证明双方在签订该协议时，存在有胁迫、重大误解、显失公平等法定可撤销、可变更该协议之情形。故邢诒仁请求变更该协议第四条第（三）项的约定内容，给予8万元奖励款的诉讼请求，没有事实和法律依据，依法不予支持。综上，依照《中华人民共和国行政诉讼法》第六十九条之规定，判决：驳回邢诒仁的诉讼请求。案件受理费50元，由邢诒仁负担。
上诉人邢诒仁上诉称，原审判决缺乏法律规定支撑，对以下内容认定错误：一、搬迁奖励不属于政府征收房屋的必须补偿项目；二、天涯区政府擅自变更上级政府的政策规定并设置奖励条件合法，邢诒仁不签意向书则不具有获得奖励的条件；三、邢诒仁既然签署征收补偿协议，说明邢诒仁放弃奖励项目。邢诒仁认为：一、搬迁奖励是不可或缺的补偿项目，三亚市政府和天涯区政府亦无证据证明邢诒仁失去获得奖励的资格。二、天涯区政府不完全执行上级机关的奖励办法，擅自变更三亚市政府的奖励规定，添加额外条件，违反法律规定。三、天涯区政府提供的补偿协议是统一格式文本，邢诒仁没有协商的机会，并非放弃获得奖励的权利。综上，请求二审法院撤销原审判决，改判天涯区政府和三亚市政府给付8万元的货币奖励。
被上诉人天涯区政府辩称，三亚市政府下发的263号文件第八条规定，被征收人在2015年10月25日前签订房屋征收安置协议并搬迁腾空房屋的，一次性给予人民币8万元/户的奖励。邢诒仁于2016年6月27日与天涯区政府签订的《三亚市金鸡岭四组片区棚户区危房改造项目房屋征收货币安置协议》第四条第三项约定，被拆迁人超过2015年11月11日后签订本协议并搬迁腾空房屋的，一律不给予任何货币奖励。邢诒仁不符合上述补偿安置方案和房屋征收货币安置协议约定的获得8万元奖励的条件。请求二审法院驳回上诉，维持原判。
被上诉人三亚市政府辩称,一、三亚市政府不属本案适格被告。邢诒仁要求奖励是基于其与天涯区政府签订的协议，三亚市政府不是该协议的当事人，邢诒仁将三亚市政府列为本案被告没有事实和法律依据。二、邢诒仁要求给予奖励款没有事实依据。根据邢诒仁与天涯区政府签订的安置协议第四条第（一）项约定，邢诒仁应在2015年10月25日之前签订协议并搬迁腾空房屋才能获得奖励，但邢诒仁事实上并没有履行约定，故其要求奖励没有事实依据。综上，请求驳回邢诒仁对三亚市政府的起诉。
本院二审查明的事实与原审认定的事实一致。
本院认为，本案的争议焦点:一、三亚市政府是否为本案适格被告；二、天涯区政府与邢诒仁签订的房屋征收补偿安置协议事实是否清楚、程序是否合法。
一、关于三亚市政府是否为本案适格被告的问题。因三亚市政府于2015年9月30日下发263号文件，经三亚市市委常委会扩大会议、市长办公会议审议通过，并由天涯区政府、三亚市各相关单位具体组织实施的棚户区改造工作，因此，三亚市政府为本案的适格被告，对于三亚市政府的上述主张本院不予采纳。
二、关于天涯区政府与邢诒仁签订的房屋征收补偿安置协议事实是否清楚、程序是否合法的问题。根据263号文件的规定，被征收人在2015年10月25日内签订房屋征收补偿安置协议并搬迁腾空房屋的，一次性给予人民币8万元/户的奖励。被征收人在2015年10月26日至2015年11月11日内签订房屋征收补偿安置协议并搬迁腾空房屋的，一次性给予人民币5万元/户的奖励。天涯区政府庭审中承认，由于工作进度的安排，在263号文件规定的条件已经明显不能成就的情况下，天涯区政府为了保障被拆迁户的权益，采取变通做法，以签订《拟安置补偿协议》的方式作为获得奖励的依据，且双方当事人均认可该变通做法保障了被拆迁户的利益。根据263号文件的规定，该征收补偿安置方案由天涯区政府负责解释，因此，天涯区政府为了保障被拆迁户的权益而对奖励措施采取的变通措施并不违反相关法律及文件的规定。具体到本案中，由于邢诒仁拒绝签订《拟安置补偿协议》，因此，无论是根据263号文件的奖励条件，还是根据天涯区政府变通过的奖励条件，邢诒仁均不符合获得奖励的条件。因此，天涯区政府与邢诒仁签订的《房屋征收补偿安置协议》事实清楚、程序合法。邢诒仁的上诉主张不能成立。
综上所述，原审判决认定事实清楚、程序合法、适用法律正确，依法应予维持。上诉人邢诒仁的上诉请求和理由不能成立，依法应予驳回。依照《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。
二审案件受理费50元由上诉人邢诒仁负担。
本判决为终审判决。
审判长陈焱
审判员吴天月
审判员朱望锋
二○一七年十一月二十七日
书记员李励云
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��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���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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