海南省高级人民法院
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（2017）琼行终1664号
海南省高级人民法院
行政判决书
（2017）琼行终1664号
上诉人（原审原告）梁其七，男，1960年11月6日出生，汉族，住海口市。
委托代理人仲毅，海南外经律师事务所律师。
被上诉人（原审被告）海口市琼山区人民政府，住所地海口市琼山区建国路1号。
法定代表人陈昊旻，区长。
委托代理人唐晓珍，海南威盾律师事务所律师。
委托代理人吴海滨，海口市琼山区人民政府法制办公室科员。
上诉人梁其七因其诉被上诉人海口市琼山区人民政府（以下简称琼山区政府）支付征收补偿款一案，不服海南省海口市中级人民法院（2017）琼01行初738号行政判决，向本院提起上诉。本院依法组成合议庭，于2017年12月5日公开开庭审理了本案，上诉人梁其七及其委托代理人仲毅，被上诉人琼山区政府的委托代理人唐晓珍、吴海滨到庭参加诉讼。本案现已审理终结。
2015年12月，琼山区政府发布《关于海口市琼山区红城湖片区（城中村）改造项目房屋征收的决定》(以下简称《红城湖片区征收决定》），由琼山区政府对红城湖片区棚户区（城中村）改造项目范围内的国有土地上的房屋实施征收。道客村五里56号的619.72平方米公共道路用地在琼山区政府征收范围内。琼山区政府未与梁其七等14户就该公共道路用地签订征收补偿协议，也未作出征收补偿决定。梁其七诉至法院，请求判令琼山区政府对分摊至梁其七名下的25.848平方米公共道路土地，按城镇混合住宅用地及出让地给予征收补偿，补偿标准为每平方米13911.3元，征收补偿款共计359579.28元。
原审查明，2005年8月，海口市人民政府颁发002736号土地证，载明：土地使用权人为梁其七，座落于海口市道客村，地号为04-01-02-541，地类（用途）为城镇混合住宅用地，使用权类型为出让，使用权面积为3209.59平方米，其中分摊面积为108.02平方米。该土地证的”记事”栏中载明：”本宗土地总面积3209.59平方米，其中：王贤新分摊213.94平方米，梁进程分摊107.6平方米，梁其七分摊108.02平方米，梁卫富分摊122.54平方米，吴启新分摊123.39平方米，梁桂琼分摊201.74平方米，林冠琼分摊213.09平方米，李桂珍分摊213.09平方米，刘光良分摊213.08平方米，王开茂分摊219.3平方米，王桂兰分摊213.08平方米，林敬勇分摊213.08平方米，何丽分摊213.09平方米，陈金真分摊214.83平方米。剩余619.72平方米作为公共道路分摊部分。”2017年6月7日，海口市国土资源局向琼山区政府作出218号《复函》，称：”转来《关于请求明确D1-D14征收编号项下619.72平方米公共道路分摊土地性质的函》已收悉，经我局派员核查，现就有关情况函复如下：一、基本情况：海南省纺织工业总公司供销公司于1994年经原海口市国土规划管理局批准核发了《国有土地使用权证》，证号为海口市国用（籍）字第Q1072号，批准面积为5293.58平方米。2004年11月30日，因借款纠纷，中国农业银行海口市海甸支行与海南省纺织工业总公司供销公司自愿达成和解协议，双方同意将海口市龙昆南路道客村的5283.58平方米土地及地上所有建筑物以人民币240万元转让给第三人张玉光、林某。根据海口市美兰区人民法院《协议书》，张玉光、林某双方就龙昆南路道客村5283.58平方米土地及其地上建筑物事宜达成一致协议：张玉光拥有2027.58平方米土地的使用权，林某拥有剩余的3256平方米土地的使用权。2005年1月22日林某与海南省纺织工业总公司供销公司签订了《土地使用权转让合同》。同年7月19日，张玉光、林某在海南省海口市税务局按5283.58平方米土地面积缴清相关费用。2005年4月3日，陈金真等14人与林某签订《土地使用权转让合同》，将林某持有的海口市国用（籍）字第Q1072号项下2589.87平方米土地使用权转让给陈金真等14人，剩余的619.72平方米土地作为公共道路使用。2005年7月25日，陈金真等14人按2589.87平方米土地面积缴清相关费用，并核发了《国有土地使用权证》，该14户的土地证号分别为：......8.证号为海口市国用（2005）字第002736号......二、处理意见：根据林某与陈金真等14户达成的协议，林某同意不再主张未转让给陈金真等14户的619.72平方米土地权利登记，将该地作为该14户的道路等公共用地使用。因此，我局在土地证备注栏标注'剩余619.72平方米作为公共道路分摊部分'。该619.72平方米土地未办理改变用途手续，我局档案登记用途仍为城镇混合住宅用地。目前，林某就余下未转让的619.72平方米的土地权益提出异议，正与我局进行司法诉讼，最终该619.72平方米土地权益的归属应以司法判决为准。”梁其七称其主张琼山区政府支付征收补偿款的25.848平方米土地面积是其与陈金真等14户根据各自土地证分摊的土地面积从619.72平方米公共道路分摊的面积中约定计算分摊所得。梁其七称案外人林某已向法院起诉主张涉案619.72平方米土地的使用权，其已被通知作为第三人参加诉讼，该案正在审理过程中。
原审认为，梁其七主张支付征收补偿款的25.848平方米土地属于涉案002736号土地证记事栏中载明的619.72平方米公共道路分摊的一部分，梁其七因此与涉案土地的征收补偿具有利害关系，其依法有权提起本案诉讼。但梁其七所持有的002736号土地证中，载明梁其七拥有土地使用权的面积为108.02平方米，不包括梁其七主张支付征收补偿款的涉案25.848平方米土地，且梁其七并无证据证明其曾就涉案25.848平方米土地缴交了土地使用权转让的相关税费，亦无证据证明其对涉案25.848平方米土地享有权属。因此，梁其七诉请给付涉案25.848平方米土地的征收补偿款没有事实和法律依据，不予支持。综上，依照《中华人民共和国行政诉讼法》第六十九条的规定，判决：驳回梁其七的诉讼请求。案件受理费50元，由梁其七负担。因梁其七起诉时预缴了诉讼费6693元，应予退还6643元。
上诉人梁其七上诉称，一、梁其七按照《红城湖片区征收决定》进行了搬迁，琼山区红城湖棚户区（城中村）改造指挥部（以下简称琼山区改造指挥部）进行拆迁时已将梁其七等14户业主公共道路619.72平方米面积分摊到每一户，但对分摊到梁其七名下的25.848平方米公共道路土地，不给予同梁其七宅基地相同的征收补偿和奖励金额。梁其七反映其诉求，琼山区政府以琼山区改造指挥部办公室的名义作出《关于D1-D14征收编号范围内619.72平方米公共道路分摊土地补偿问题的答复》，该答复是对梁其七等14户业主619.72平方米公共道路分摊土地补偿的认定，是琼山区政府的具体行政行为。二、依据梁其七的《土地证》记载，林某转让给梁其七等14户业主的土地使用面积为3209.59平方米。其中梁其七等14户业主为2589.87平方米，剩余619.72平方米作为梁其七等14户业主公共道路分摊部分。2005年3月28日，林某向海口市国土资源局出具一份申请，明确表示剩余619.72平方米作为梁其七等14户业主的公共道路用地，放弃该619.72平方米土地的使用权。该619.72平方米作为建筑区划内公共道路，应归属梁其七等14户业主共有。三、梁其七的《土地证》和海口市国土资源局琼山分局（2016）208号复函都明确619.72平方米公共道路分摊土地权属性质为国有土地，用途为城镇混合住宅用地。该复函改变涉案土地性质和权属，将其认定为集体公共建设用地没有事实根据和法律依据。
本案涉案土地评估价格为每平方米4797元，依据《海口市琼山区红城湖棚户区（城中村）改造项目征收补偿方案》第十一条第（一）项、第二十四、二十五条的规定，梁其七的土地征收补偿和奖励应为每平方米13911.3元。请求二审法院撤销原审判决，判令琼山区政府对分摊至梁其七名下的25.848平方米公共道路土地，按城镇混合住宅用地及出让地给予征收补偿，补偿标准为每平方米13911.3元，征收补偿款共计359579.28元。本案诉讼费用由琼山区政府负担。
被上诉人琼山区政府答辩称，一、琼山区红城湖棚户区（城中村）改造指挥办公室作出的《关于D1-D14征收编号范围内619.72平方米公共道路分摊土地补偿问题的答复》不是琼山区政府作出的具体行政行为，不具有可诉性。二、梁其七是否具有本案原告诉讼主体资格尚未确定。请求法院依法驳回梁其七的上诉请求。
本院查明事实与原审判决查明事实一致，本院予以确认。
本院另查明，2015年3月28日，林某向海口市国土资源局提交了其不再主张未转让给陈金真等14户的619.72平方米土地的权属登记发证的《申请》，但未表示放弃该地的权属。2015年12月，琼山区政府发布《红城湖片区征收决定》，对红城湖片区棚户区（城中村）改造项目范围内的国有土地上的房屋实施征收。海口市琼山区国兴街道道客社区道客村五里56-6号的房屋（王贤新所有）及涉案土地，属征收范围。2016年2月25日，梁其七与海口市琼山区重点项目推进管理委员会签订了《海口市琼山区红城湖片区（城中村）改造项目征收货币化安置协议》。2016年5月31日，针对琼山区改造指挥部的《关于土地权属有关问题咨询意见函》，琼山国土分局向该指挥部作出琼山土资字[2016]148号《关于土地权属有关问题的复函》，认定619.72平方米的公共道路用地地使用权人仍为林某。2016年6月13日，王贤新等人向琼山区改造指挥部作出《关于不同意海口市国土资源局琼山分局对619.72平方米公共道路部分土地使用权归属所作处理意见的函》，其称”作为土地权益人，不同意国土局对619.72平方米公共道路部分土地使用权权属所作的处理意见，在争议解决之前，贵指挥部不能按照国土局的处理意见将相应的征地补偿款支付给林某”。2016年6月17日，琼山国土分局作出琼山土资字[2016]172号《关于撤销琼山土资字[2016]148号文的函》，以进一步核实土地权属为由，将琼山土资字[2016]148号文予以撤销。2016年7月7日，琼山国土分局又琼山区改造指挥部作出琼山土资字[2016]208号《关于土地权属有关问题的复函》，认定林某已放弃619.72平方米土地的使用权属及该土地作为公共道路分摊部分。2016年12月26日，林某向琼山区改造指挥部发出《律师函》，以林某转让给王贤新等14人的土地不包括涉案619.72平方米国有土地，其未放弃该地使用权及已提起诉讼等为由，要求该指挥部待土地权属争议解决后，再行办理土地的补偿款发放事宜。2017年4月7日，琼山区改造指挥部作出《关于D1-D14征收编号范围内619.72平方米公共道路分摊土地征收补偿问题的答复》，参照《海口市琼山区红城湖棚户区（城中村）改造项目征收补偿方案》第二章第十一条关于集体公共建设用地（含集体公共用房和配套设施补偿用地）参照片区住宅（容积率0.3）土地评估的60%给予补偿的规定，明确涉案土地补偿标准为每平方米人民币1119元。
本院认为，被征收人明确是征收补偿的前提，但根据本案查明事实，在涉案项目启动后，梁其七等人和林某分别致函琼山区改造指挥部，均对619.72平方米公共道路用地提出权属主张，且林某还就此另案提起了诉讼。在该土地权属产生争议的情况下，梁其七单方提起行政诉讼主张征收补偿费用，证据不足，待涉案公共道路用地权属确定后，权利人方可依法主张征收补偿费用。而且，在涉案项目启动后，琼山区政府至梁其七提起本案诉讼时止尚未就涉案公共道路用地作出征收补偿决定，人民法院在行政机关作出行政决定之前，不宜径行作出司法裁判。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。上诉人梁其七的上诉请求和理由不能成立，本院不予支持。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，由上诉人梁其七负担。
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○一七年十二月十九日
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，判决或者驳回上诉，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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