海南省第二中级人民法院
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（2017）琼97行赔初34号
海南省第二中级人民法院
行政赔偿裁定书
（2017）琼97行赔初34号
原告：羊永强，男，汉族，1950年3月4日出生，现住海南省儋州市。
委托诉讼代理人：李晶瑜，海南如瑜律师事务所律师。
委托诉讼代理人：张婷婷，海南如瑜律师事务所律师。
被告：儋州市人民政府，住所地海南省儋州市那大镇中兴大道。
法定代表人：朱洪武，该市市长。
被告：儋州市木棠镇人民政府，住所地海南省儋州市木棠镇。
法定代表人：羊雄，该镇镇长。
委托诉讼代理人：李志雄，该镇政府工作人员。
委托诉讼代理人：符敬浓，海南宏顺律师事务所律师。
被告：儋州市国土资源局，住所地海南省儋州市那大镇中兴大道。
法定代表人：吴才高，该局局长。
被告：儋州市住房和城乡建设局，住所地海南省儋州市那大镇中兴大道。
法定代表人：袁树柏，该局局长。
原告羊永强诉被告儋州市人民政府、儋州市木棠镇人民政府（以下简称木棠镇政府）、儋州市国土资源局、儋州市住房和城乡建设局拆迁行政赔偿纠纷一案，本院受理后，依法组成合议庭进行了审理。本案现已审理终结。
原告羊永强于2017年9月13日向本院提起诉讼，请求判决四被告赔偿因其违法行为给原告造成的经济损失79880元。事实与理由：2011年，木棠村民委员会积玉堂村民小组为改善居住条件，响应党中央”建设社会主义新农村”的号召，经全体村民讨论一致通过决定另立新村地址，将本村坡地”大山陋”规划建设成积玉堂的社会主义新农村。2011年5月2日，该村民小组向木棠镇政府递交了《关于木棠村委会积玉堂村另选新址建设社会主义新农村的请示》，为全村57户185名村民提出在”大山陋”荒坡地建房的申请，并附上了乡村规划图。2011年6月23日，木棠村民委员会积玉堂村民小组与全村57户村民分别签订了《积玉堂新村宅基地协议书》，将宅基地按照”每户一所”进行分配，原告依约取得一块宅基地。村民取得宅基地后陆续开工建设，而原告开始建房时已有十几户村民已建成新房并入住。2017年4月28日，该村民小组再次向木棠镇政府递交《建设社会主义新农村申请报告》。原告开始建房近一个月后，2017年5月17日早上，木棠镇政府镇长、副镇长带领工作人员及300多名警察，对原告等两家正在建设中的住宅进行强拆，造成经济损失79880元。综上，四被告强拆原告在建房屋无事实和法律依据，程序严重违法，根据《中华人民共和国行政诉讼法》第二十五条、《中华人民共和国国家赔偿法》第二条之规定，提起诉讼。
被告儋州市人民政府辩称，其不是本案的适格被告，请求裁定驳回原告的起诉。儋州市人民政府没有对原告羊永强作出具体行政行为，只是基于行政隶属关系而对木棠镇政府提交的文件做了正常的批示，属于行政机关内部行政事务管理的常态，不影响外部相对人的权利和义务。根据《中华人民共和国行政诉讼法》第二十六条的规定，儋州市人民政府不应被列为本案被告。
经审理查明，木棠镇政府、儋州市国土资源局、儋州市住房和城乡建设局于2017年5月1日作出《关于限期拆除非法占地建房的行政处罚决定书》，责令原告羊永强在3日内自行拆除已经形成的地上附着物。木棠镇政府于2017年5月3日向儋州市人民政府发出《关于批准拆除违法建筑的请示》，准备在2017年5月12日上午9时，依法拆除木棠镇锦棠大道上的房子两间。木棠镇政府、儋州市国土资源局、儋州市住房和城乡建设局于2017年5月4日联合作出《强制拆除催告书》，要求原告在3日内自行拆除和清理位于××镇旁林地的房子。木棠镇政府、儋州市国土资源局、儋州市住房和城乡建设局于2017年5月9日联合作出《联合行政强制拆除执行决定书》，决定于2017年5月12日对原告的违法建筑和构筑物执行行政强制拆除。2017年5月10日，儋州市人民政府作出批示：按方案要求做好拆除工作。
本院审查认为，原告羊永强的在建房屋被强制拆除，依据的是被告木棠镇政府、儋州市国土资源局、儋州市住房和城乡建设局联合作出的《关于限期拆除非法占地建房的行政处罚决定书》和《联合行政强制拆除执行决定书》，而儋州市人民政府并没有作出以上行政行为。虽然在实施强制拆除行为之前，木棠镇政府向儋州市人民政府进行了请示，儋州市人民政府也进行了批示，但该批示行为系行政机关的内部工作程序，并不对原告的权利义务产生直接影响。因此，在本案中，儋州市人民政府并不是《中华人民共和国行政诉讼法》第二十六条规定的适格被告，应当驳回原告对儋州市人民政府的起诉。
综上，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》第三条第一款第（三）项之规定，裁定如下：
驳回原告羊永强对儋州市人民政府的起诉。
案件受理费50元，退回给原告羊永强。
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，上诉于海南省高级人民法院。
审判长郝良存
审判员周文娟
审判员符波
二○一七年十一月八日
法官助理王灵聪
书记员赵瑛瑛
书记员赵瑛瑛
附：本裁定适用的相关法律依据
《中华人民共和国行政诉讼法》
第二十六条公民、法人或者其他组织直接向人民法院提起诉讼的，作出行政行为的行政机关是被告。
经复议的案件，复议机关决定维持原行政行为的，作出原行政行为的行政机关和复议机关是共同被告；复议机关改变原行政行为的，复议机关是被告。
复议机关在法定期限内未作出复议决定，公民、法人或者其他组织起诉原行政行为的，作出原行政行为的行政机关是被告；起诉复议机关不作为的，复议机关是被告。
两个以上行政机关作出同一行政行为的，共同作出行政行为的行政机关是共同被告。
行政机关委托的组织所作的行政行为，委托的行政机关是被告。
行政机关被撤销或者职权变更的，继续行使其职权的行政机关是被告。
《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：
（一）不符合行政诉讼法第四十九条规定的；
（二）超过法定起诉期限且无正当理由的；
（三）错列被告且拒绝变更的；
（四）未按照法律规定由法定代理人、指定代理人、代表人为诉讼行为的；
（五）未按照法律、法规规定先向行政机关申请复议的；
（六）重复起诉的；
（七）撤回起诉后无正当理由再行起诉的；
（八）行政行为对其合法权益明显不产生实际影响的；
（九）诉讼标的已为生效裁判所羁束的；
（十）不符合其他法定起诉条件的。
人民法院经过阅卷、调查和询问当事人，认为不需要开庭审理的，可以径行裁定驳回起诉。
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男女一方要求离婚的，可由有关部门进行调解或直接向人民法院提出离婚诉讼。
人民法院审理离婚案件，应当进行调解；如感情确已破裂，调解无效，应准予离婚。
有下列情形之一，调解无效的，应准予离婚：
（一）重婚或有配偶者与他人同居的；
（二）实施家庭暴力或虐待、遗弃家庭成员的；
（三）有赌博、吸毒等恶习屡教不改的；
（四）因感情不和分居满二年的；
（五）其他导致夫妻感情破裂的情形。
一方被宣告失踪，另一方提出离婚诉讼的，应准予离婚。
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