海南省三亚市中级人民法院
p t ; ” > 行 政 判 决 书
（2016）琼02行初487号
原告陈家魁，男，66岁，汉族，现住三亚市。
委托代理人陈亚喜，男，52岁，汉族，现住三亚市。
被告三亚市人民政府，住所地三亚市新风路257号。
法定代表人吴岩峻，市长。
委托代理人周丽，三亚市法制办公室工作人员。
被告三亚市崖州区人民政府，住所地三亚市崖州区G225国道边。
法定代表人冯强，区长。
委托代理人麦少华，三亚市崖州区法制工作办公室工作人员。
委托代理人翁静华，三亚市崖城法律事务所工作人员。
原告陈家魁诉被告三亚市人民政府（下简称三亚市政府）、三亚市崖州区人民政府（下简称崖州区政府）集体土地征收补偿纠纷一案，本院受理后，依法组成合议庭，于2017年3月3日对本案公开开庭进行了审理。原告陈家魁及其委托代理人陈亚喜，被告三亚市政府委托代理人周丽，被告崖州区政府委托代理人麦少华、翁静华出庭参加诉讼。本案现已审理终结。
本案被诉行政行为：因建设三亚创意新城项目，被告三亚市政府决定征收原告所在三亚市××区的部分集体土地，2015年9月10日，被告崖州区政府组织相关部门对被征用的土地进行平整并将该地交付开发建设。原告主张在被征四村七组部分集体土地范围内，有其家庭开荒使用的0.495亩土地。
原告陈家魁诉称，原告原在××村的集体土地中有2.3亩家庭承包地，其后又在承包地旁边开荒0.495亩土地用于家庭种植经营。2012年9月，被告在征收该部分集体土地时，仅征收承包经营权证上登记的2.3亩家庭承包地并进行补偿，并未征收原告0.495亩开荒地，也未进行过任何补偿。2015年9月10日，在未对原告0.495亩开荒地进行调查统计并给予补偿的情况下，被告崖州区政府组织相关部门对被征用的土地进行平整并将该地交付开发建设。因被告的行为已侵害了原告的合法权益，故请求人民法院依法判决：判令被告给付原告0.495亩开荒地的土地补偿款96822元（0.495亩×195600元/亩=96822元）及搭建看护棚费5000元。
原告向本院提供如下证据：1、农村土地承包经营权证；2、土地相邻权人证明；3、上访材料。
被告三亚市政府辩称，被告已对原告被征收土地全部进行了补偿。原告所主张其尚有0.495亩开荒地及所搭建的看护棚没有得到补偿没有事实和法律依据。一、原告未能证明涉案土地系其开荒的事实。原告虽提交一份土地相邻权人的证言，但土地相邻权人因其与原告有利害关系且证人未出庭接受质证，故不能作为认定案件事实的依据。二、原告并未依法取得涉案土地的承包经营权。依《海南省实施〈中华人民共和国农村土地承包法〉办法》第十五条之规定，因原告并未举证证明其与四村七组签订承包合同并缴纳承包金的事实，故原告无权主张土地补偿款。该土地补偿款应归四村七组所有。三、因原告并未依法取得涉案土地的承包经营权，也未能证明涉案土地上有附着物存在，故原告的请求没有事实和法律依据，依法应予驳回。
被告三亚市政府向本院提供如下证据：1、征收文件；2、补偿统计表及相关支付凭证。
被告崖州区政府辩称，崖州区政府不是涉案土地的征收主体，作出征收决定的机关系三亚市政府。原告在2016年1月4日曾以与本案同样的事实和理由起诉崖州区政府，后经两审，法院均以崖州区政府并非征收主体为由驳回原告对崖州区政府的起诉，该裁定已发生法律效力，故崖州区政府非本案适格被告。请求人民法院驳回原告对崖州区政府的起诉。
被告崖州区政府向本院提供如下证据：1、征收文件；2、补偿统计表及相关支付凭证；3、（2016）琼行终399号行政裁定书。
经庭审质证，原、被告所提供的证据形式真实，来源合法，与所证争议事实有关联，可以作为认定本案争议事实的依据。
经审理查明，原告系三亚市崖州区大蛋村委会四村七组村民，原在××村的集体土地中有2.3亩家庭承包地。2012年9月，被告在征收该部分集体土地时，已对原告承包经营权证上登记的2.3亩家庭承包地实施征收并进行补偿。2015年9月10日，被告崖州区政府组织相关部门对被征用范围内的土地进行平整并将该地交付开发建设。
另查，被告在××村的部分集体土地过程中，仅对村民所持有的承包经营权证上登记的承包地面积进行调查统计，而未对该集体经济组织被征收的位于长坡园的全部被征集体土地面积（包括荒地、道路等）进行调查统计，未确定全部被征集体土地面积。
本院认为，原告是否在其承包地周边开垦荒地用于种植，是否具有开荒地的承包经营权，均属原告与其经济组织的内部事务，有赖于原告与其所在集体经济组织进一步确认。被告作为征收部门，应对集体经济组织的全部被征集体土地面积进行调查统计，确定全部被征集体土地面积并给予补偿，而不是仅按村民所持有的承包经营权证上登记的承包地面积进行补偿。只有这样，村民才能根据本集体经济组织确定的补偿款分配方案，向其所在集体经济组织要求分配包括开荒地在内的补偿款。本案中，被告在××村的部分集体土地过程中，仅对村民所持有的承包经营权证上登记的承包地面积进行调查统计，而未对该集体经济组织被征收的位于长坡园的全部被征集体土地面积（包括荒地、道路等）进行调查统计，未确定全部被征集体土地面积。对此，征收部门应采取补救措施，对该集体经济组织被征收的位于长坡园的全部被征集体土地面积（包括荒地、道路等）进行调查统计，确定全部被征集体土地面积，按时、足额向被征收集体经济组织发放补偿款。征收机关向被征收集体经济组织发放补偿款后，原告是否在其承包地周边开垦荒地用于种植，是否具有开荒地的承包经营权，依本集体经济组织确定的补偿款分配方案，是否应取得开荒地的补偿款，均属原告与其集体经济组织的内部事务，如有纠纷，则应再由原告与其所属集体经济组织另行通过合法途径予以解决。
综上，被告在××村的部分集体土地过程中，仅对村民所持有的承包经营权证上登记的承包地面积进行调查统计，而未对该集体经济组织被征收的位于长坡园的全部被征集体土地面积（包括荒地、道路等）进行调查统计，未经被征收集体经济组织确定全部被征集体土地面积，其征收行为违法，应采取相应的补救措施。由于集体土地征收补偿、安置款项属集体所有，村民可根据本集体经济组织确定的补偿款分配方案，向其所在集体经济组织要求分配包括开荒地在内的补偿款。故原告直接要求征收机关给付全部土地征收补偿、安置款项的诉讼请求，没有法律依据，本院依法不予支持。对于原告要求补偿地上附属设施的诉讼请求，因原告没有提供相适证据，本院依法不予支持。鉴于被告三亚市政府系征收决定机关，崖州区政府系实施机关，应共同采取补救措施，故崖州区政府提出其不是适格被告的主张，本院依法亦不予支持。依照《中华人民共和国行政诉讼法》第二十六条第四款、《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》第五十六条第（四）项、第五十八条之规定，判决如下：
一、被告三亚市人民政府、三亚市崖州区人民政府应在本判决生效之日起三十日内，对三亚市崖州区大蛋村委会四村七组被征收的、位于长坡园的全部被征集体土地面积（包括荒地、道路等）进行调查统计，确定全部被征集体土地面积；
二、驳回原告陈家魁的诉讼请求。
案件受理费50元，由被告三亚市人民政府、三亚市崖州区人民政府负担。
如不服本判决，可在判决书送达之日起十五日内提起上诉，向本院递交上诉状，并按对方当事人的人数递交上诉状副本，上诉于海南省高级人民法院。
审判长陈兴科
审判员张维青
人民陪审员王文伟
二Ｏ一七年五月二日
书记员熊冰清
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