海南省第二中级人民法院
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（2017）琼97行赔初35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35号
原告：羊定杰，男，汉族，1995年10月29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。
原告羊定杰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。
原告羊定杰于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74525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定杰作出具体行政行为，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��书》，责令原告羊定杰在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，原告羊定杰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���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：
驳回原告羊定杰对儋州市人民政府的起诉。
案件受理费50元，退回给原告羊定杰。
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��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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caseinfo=JSON.stringify({\"文书ID\":\"fd9b4212-7064-433b-a305-a94a0094dd5f\",\"案件名称\":\"葛基伟盗窃刑罚变更刑事裁定书\",\"案号\":\"（2018）皖07刑更423号\",\"审判程序\":\"刑罚变更\",\"上传日期\":\"\\\/Date(1535644800000)\\\/\",\"案件类型\":\"1\",\"补正文书\":\"2\",\"法院名称\":\"安徽省铜陵市中级人��法院\",\"法院ID\":\"1258\",\"法院省份\":\"安徽\",\"法院地市\":\"铜陵市\",\"法院区县\":\"\",\"法院区域\":\"\",\"文书类型\":null,\"文书全文类型\":\"1\",\"裁判日期\":null,\"结案方式\":null,\"效力层级\":null,\"不公开理由\":\"\",\"DocContent\":\"\",\"文本首部段落原文\":\"\",\"诉讼参与人信息部分原文\":\"\",\"诉讼记录段原文\":\"安徽省庐江县人民法院于2015年2月3日作出（2015）庐江刑初字第00013号刑事判决，以被告人葛基伟犯盗窃罪，判处有期徒刑六年六个月，并处罚金十万元。判决发生法律效力后交付执行。
执行机关安徽省铜陵监狱以罪犯葛基伟在服刑期间确有悔改表现，于2018年8月1日提出减刑建议，报送本院审理。本院立案后5日内进行公示并依法组成合议庭审理。现已审理终结\",\"案件基本情况段原文\":\"\",\"裁判要旨段原文\":\"\",\"判决结果段原文\":\"\",\"附加原文\":\"\",\"文本尾部原文\":\"\"});$(document).attr(\"title\",\"葛基伟盗窃刑罚变更刑事裁定书\");$(\"#tdSource\").html(\"葛基伟盗窃刑罚变更刑事裁定书
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},{ name: \"审理程序\", key: \"trialRound\", value: \"刑罚变更\" },{ name: \"裁判日期\",
key: \"trialDate\", value: \"2018-08-20\" },{ name: \"当事人\", key:
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[{法规名称:\'《中华人民共和国刑法》\',Items:[{法条名称:\'第七十八条第一款\',法条内容:\' 第七十八条
被判处管制、拘役、有期徒刑、无期徒刑的犯罪分子，在执行期间，如果认真遵守监规，接受教育改造，确有悔改表现的，或者有立功表现的，可以减刑；有下列重大立功表现之一的，应当减刑：
（一）阻止他人重大犯罪活动的；
（二）检举监狱内外重大犯罪活动，经查证属实的；
（三）有发明创造或者重大技术革新的；
（四）在日常生产、生活中舍己救人的；
（五）在抗御自然灾害或者排除重大事故中，有突出表现的；
（六）对国家和社会有其他重大贡献的。
减刑以后实际执行的刑期不能少于下列期限：
（一）���处管制、拘役、有期徒刑的，不能少于原判刑期的二分之一；
（二）判处无期徒刑的，不能少于十三年；
（三）人民法院依照本法第五十条第二款规定限制减刑的死刑缓期执行的犯罪分子，缓期执行期满后依法减为无期徒刑的，不能少于二十五年，缓期执行期满后依法减为二十五年有期徒刑的，不能少于二十年。
\'},{法条名称:\'第七十八条第一款\',法条内容:\'
第七十八条
被判处管制、拘役、有期徒刑、无期徒刑的犯罪分子，在执行期间，如果认真遵守监规，接受教育改造，确有悔改表现的，或者有立功表现的，可以减刑；有下列重大立功表现之一的，应当减刑：
（一）阻止他人重大犯罪活动的；
（二）检举监狱内外重大犯罪活动，经查证属实的；
（三）有发明创造或者重大技术革新的���
（四）在日常生产、生活中舍己救人的；
（五）在抗御自然灾害或者排除重大事故中，有突出表现的；
（六）对国家和社会有其他重大贡献的。
减刑以后实际执行的刑期，判处管制、拘役、有期徒刑的，不能少于原判刑期的二分之一；判处无期徒刑的，不能少于十年。
\'},{法条名称:\'第七十九条\',法条内容:\'
第七十九条
对于犯罪分子的减刑，由执行机关向中级以上人民法院提出减刑建议书。人民法院应当组成合议庭进行审理，对确有悔改或者立功事实的，裁定予以减刑。非经法定程序不得减刑。
\'}]},{法规名称:\'《中华人民共和国刑事诉讼法（2012年）》\',Items:[{法条名称:\'第二百六十二条第一款\',法条内容:\'
第二百六十二条罪犯在服刑期间又犯罪的，或者发现了判决的时候所没有发现的罪行，由执行机关移送人民检察院处理。
被判处管制、拘役、有期徒刑或者无期徒刑的罪犯，在执行期间确有悔改或者立功表现，应当依法予以减刑、假释的时候，由执行机关提出建议书，报请人民法院审核裁定，并将建议书副本抄送人民检察院。人民检察院可以向人民法院提出书面意见。
\'}]}]};if
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