海南省三亚市中级人民法院
p t ; ” > 行 政 赔 偿 裁 定 书
（2017）琼02行赔终1号
上诉人（原审原告）罗朝珍，现住三亚市。
委托代理人梁海雄，海南邦威律师事务所律师。
委托代理人张晓晴，海南邦威律师事务所律师。
被上诉人（原审被告）三亚市综合行政执法局，住所地三亚市凤凰路212号。
法定代表人王宏宁，该局局长。
委托代理人林祖才，海南祥瑞律师事务所律师。
委托代理人罗政伟，该局工作人员。
上诉人罗朝珍因诉被上诉人三亚市综合行政执法局（以下简称市执法局）行政赔偿纠纷一案，不服三亚市城郊人民法院（2017）琼0271行初9号行政赔偿裁定，向本院提起上诉。本院依法组成合议庭，公开开庭审理了本案。本案审理期间，因本案与本院同期受理的上诉人高清弟等人分别诉被上诉人市执法局规划行政强制纠纷及行政赔偿纠纷9案的上诉请求、事实与理由相类同，本院在征得各方当事人同意后将该10个案件合并审理。上诉人罗朝珍委托代理人梁海雄、张晓晴，被上诉人市执法局委托代理人林祖才、罗政伟到庭参加诉讼。本案现已审理终结。
原审法院认为，本案为罗朝珍单独提起的行政赔偿诉讼，根据《中华人民共和国国家赔偿法》第九条第二款、《最高人民法院关于审理行政赔偿案件若干问题的规定》第四条第二款、第二十一条第(五)项的规定，赔偿请求人单独提起行政赔偿诉讼，须以赔偿义务机关先行处理为前提。本案中，罗朝珍作为行政赔偿的赔偿请求人单独提起行政赔偿诉讼，应当先向赔偿义务机关即市执法局提出，罗朝珍提供的证据不能证明其已向市执法局提出行政赔偿请求，市执法局亦未作出过行政处理决定，因此，罗朝珍的起诉不符合单独提起行政赔偿诉讼案件的法定起诉和受理条件，人民法院应依法驳回其起诉。依照《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（十）项的规定，裁定：驳回罗朝珍的起诉；案件受理费50元退还罗朝珍。
上诉人罗朝珍上诉称：原审认定上诉人罗朝珍单独提起行政赔偿诉讼，缺乏事实和法律依据。2016年11月11日，上诉人与其他村民就市执法局违法强制拆除其房屋及行政赔偿一并向三亚市中级人民法院提起诉讼，经法院释明，上诉人罗朝珍等人将起诉书分成了违法行政起诉书和行政赔偿起诉书。后因三亚市人民政府（以下简称三亚市政府）不是适格被告，罗朝珍于2016年12月26日撤回对三亚市政府的起诉，三亚市中级人民法院将上诉人罗朝珍等5人起诉的10案一并移送至原审法院三亚市城郊人民法院。上诉人认为把案件一分为二拆分是经法院释明的，属于同时起诉、同时审理的，原审法院认定上诉人属于单独提起行政诉讼无事实与法律依据。综上，请求：二审法院依法撤销原审裁定；判决被上诉人赔偿上诉人房屋损失1563084元、房屋租赁损失66000元（按2000元/月，暂计至2017年1月22日）、租房居住损失49500元（按1500元/月，暂计至2017年1月22日），律师服务费466000元，以上共计2144584元。
被上诉人市执法局辩称，原审法院作出的裁定认定事实清楚，适用法律正确，上诉人的上诉理由不能成立。无论上诉人的陈述是否是事实，该案作为行政赔偿诉讼已经是单独立案的案件，原审认定上诉人单独提起行政赔偿诉讼是毫无争议的事实，此外，即使把两案认定为合并起诉，根据行政诉讼法的相关规定，合并起诉适用行政行为起诉的期限。因此，上诉人起诉行政赔偿也已超过法定的起诉期限，因此上诉人的上诉请求及事实与理由均不能成立，请求法院依法驳回。
二审审理查明，罗朝珍系临春村原籍居住居民，于1994年7月在该村三组自家宅基地上建设一栋三层框架结构房屋，建筑面积为578.92㎡。2014年4月18日，市执法局下洋田中队工作人员巡查发现上述建筑未取得合法报建手续，属于违章建筑；同日，制作《现场检查笔录》和《违建户主违章建筑现场图》，向”违建户主”下发《责令停止违法行为通知书》和《责令（限期）改正通知书》，并在上述通知书的送达回执上记载”当事人拒签，我执法人员采取留置送达，并拍照取证”字样。2014年4月21日，市执法局向”违建业主”下发《强制执行决定书》，并在送达回执上记载”当事人拒签，我执法人员采取留置送达，并拍照取证”字样；同日，市执法局工作人员对罗朝珍的上述房屋进行丈量和登记。2014年4月22日，市执法局将罗朝珍的上述房屋拆除，并制作《拆除违法建筑现场图片说明》。
另查明，2014年4月22日，市执法局对罗朝珍、高清弟等26户临春村民的房屋实施强制拆除。2014年9月22日，高清弟等21名村民向三亚市河东区管委会提交《关于被拆除村民房屋的补偿请求》。此后，高清弟等人向吉阳区政府、市执法局等多个部门进行上访，2016年9月28日，市执法局作出《受理告知书》。2016年10月10日，三亚市吉阳区项目推进服务中心作出《关于高清第信访情况的处理意见》，认为其房屋不在其征收补偿范围之内。2016年11月11日，罗朝珍向本院提起规划行政强制纠纷一案诉讼的同时一并提起行政赔偿请求。经本院释明，罗朝珍将起诉书分成了违法行政起诉书和行政赔偿起诉书。罗朝珍将三亚市政府和市执法局一并列为被告，后因三亚市政府不是适格被告，其于2016年12月26日撤回对三亚市政府的起诉，本院予以准许并将该二案一并移送至原审法院三亚市城郊人民法院。2017年1月19日，三亚市城郊人民法院立案受理。
本院认为，首先，关于本案是单独提起行政赔偿诉讼还是一并提起行政赔偿诉讼的问题。《中华人民共和国国家赔偿法》第九条规定，赔偿请求人要求赔偿，应当先向赔偿义务机关提出，也可以在申请行政复议或者提起行政诉讼时一并提出，本案中，2016年11月11日，罗朝珍提起规划行政强制纠纷一案诉讼的同时一并提起行政赔偿请求。经本院释明，上诉人罗朝珍将起诉书分成了违法行政起诉书和行政赔偿起诉书。后因罗朝珍撤回对三亚市政府的起诉，本院将该二案一并移送至原审法院三亚市城郊人民法院。因此，上诉人罗朝珍在提起行政诉讼的同时一并提出行政赔偿请求，属于上述规定中一并提出行政诉讼的情形。原审法院认定上诉人属于单独提起行政诉讼存在错误，应予以纠正。
其次，关于上诉人提起的行政赔偿诉讼是否超过法定起诉期限的问题。《最高人民法院关于审理行政赔偿案件若干问题的规定》第二十三条第一款规定，公民、法人或者其他组织在提起行政诉讼的同时一并提出行政赔偿请求的，其起诉期限按照行政诉讼起诉期限的规定执行。根据《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》第四十一条和《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》第二十六条的有关规定，罗朝珍对市执法局提起规划行政强制纠纷一案诉讼的起诉期限应当至2015年10月31日届满，其于2016年11月11日才提起诉讼，已超过法定起诉期限，因此，其一并提起的行政赔偿请求亦已超过法定起诉期限。
综上，原审裁定认定罗朝珍单独提起行政赔偿诉讼存在错误，应予以纠正；但驳回起诉的裁定结果并未不当，应予维持。罗朝珍提起的各项赔偿请求缺乏法律依据，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，裁定如下：
驳回上诉，维持原裁定。
本裁定为终审裁定。
审判长王娜
审判员黎少云
审判员张维青
二〇一七年八月二十三日
书记员邱海惠
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