海南省高级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼行终103号
上诉人（原审原告）：王家淑等47人（具体名单及基本情况附后）。
上诉人共同委托诉讼代理人：陈太真，广东三正律师事务所律师。
被上诉人（原审被告）：三亚市人民政府。住所地：海南省三亚市新风路***号。
法定代表人：吴岩峻，该市市长。
委托诉讼代理人：郑大平，三亚市人民政府法制办公室工作人员。
原审原告：杨小君，女，1971年12月21日出生，汉族，住海南省三亚市。
原审被告：三亚市吉阳区人民政府。住所地：海南省三亚市吉阳区迎宾路***号。
法定代表人：张华文，该区区长。
委托诉讼代理人：王昌，三亚市吉阳区人民政府工作人员。
委托诉讼代理人：王树伟，海南惠海律师事务所律师。
原审第三人：三亚市吉阳区东岸村民委员会。住所地：海南省三亚市吉阳区东岸村。
负责人：林尤兴，该村民委员会主任。
上诉人王家淑等47人因与被上诉人三亚市人民政府（以下简称三亚市政府）、原审原告杨小君、原审被告三亚市吉阳区人民政府（以下简称吉阳区政府）以及原审第三人三亚市吉阳区东岸村民委员会（以下简称东岸村委会）拆迁补偿安置方案纠纷一案，不服海南省三亚市中级人民法院（2016）琼02行初350号行政裁定,向本院提起上诉。本院于2017年2月8日立案后依法组成合议庭对本案进行了审理，现已审理终结。
王家淑等48人向一审法院诉称，一、三亚市政府于2015年9月30日公告三府办[2015]270号《东岸村棚户区改造项目拆迁补偿安置方案》（以下简称270号《安置方案》），270号《安置方案》违宪，损害人类生而平等的法律精神及悖背自由、公正、法治的社会主义核心价值观。该方案规定在项目范围内外来人员所建房屋，按”一栋一户”的原则和方案明确的房屋补偿面积（以525平方米为最高上限），房屋所有权人自即日起至2016年4月20日期间配合签订补偿协议的，按800元/平方米的标准予以补助；2016年4月20日后房屋所有人仍拒不配合签订拆迁协议的，将依法按程序采取强制措施，因此产生的损失由房屋所有人自行承担。该方案将东岸村居民划分为外来人员和本地户籍人员，对公民的合法财产按不同的标准予以补偿，违反平等原则,侵害公民的住宅、私有财产等合法权利。二、270号《安置方案》之拟定违反行政程序，违反《国有土地上房屋征收与补偿条例》之原则性规定。三、270号《安置方案》没有对被征收房屋按照市场标准进行评估及补偿，违反《国有土地上房屋征收与补偿条例》之规定。四、270号《安置方案》征收范围内的建筑物及居民生活情况不符合所谓棚户区认定，三亚市政府认定东岸村属于棚户区，没有政策依据及行政权限。综上，请求人民法院撤销三亚市政府作出的270号《安置方案》。
一审法院认为，征收补偿安置方案是由房屋征收部门拟定，报市、县级人民政府审批决定，对被征收范围内的被征收人的权利、义务产生普遍约束力的规范性文件。依照《中华人民共和国行政诉讼法》第五十三条之规定，如原告认为该规范性文件不合法，在对行政行为提起诉讼时，可以一并请求对该规范性文件进行审查。具体到本案，也就是说，如果原告作为被征收人，在与征收部门达不成征收补偿安置协议的情形下，对由房屋征收部门报请市、县级人民政府依照征收补偿安置方案作出的补偿决定不服，可以在对补偿决定依法提起行政诉讼时，一并请求人民法院对征收补偿安置方案进行审查。人民法院经审查，如果认为征收补偿安置方案不合法，可以不作为认定补偿决定合法的依据，并向制定机关提出处理建议。但本案中，王家淑等48人直接单独对270号《安置方案》提起诉讼，请求撤销该方案，不符合《中华人民共和国行政诉讼法》第五十三条规定的法定起诉条件。综上，一审法院依照《中华人民共和国行政诉讼法》第十三条第二项、第五十三条、《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》第三条第一款第十项之规定，裁定驳回王家淑等48人的起诉。
王家淑等47人不服一审裁定，上诉称，一、270号《安置方案》并非具有普遍约束力的决定、命令。270号《安置方案》指向对象范围确定，权利人明确，直接影响征收对象的权益。行政征收房屋行为具有可诉性，属于行政诉讼受案范围。三亚市政府征收行为直接表现为其发布的270号《安置方案》，至于三亚市政府是否做出房屋征收决定无人知晓，故上诉人基于对自身权益的救济而起诉270号《安置方案》符合法律规定。270号《安置方案》体现为抽象行政行为，抽象行政行为在当代诉讼制度下具有可诉性。二、本案不符合《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》第三条规定的应当裁定驳回起诉的十类情形。综上，请求二审法院撤销一审裁定，指令一审法院继续审理本案或者由二审法院直接审理本案。
被上诉人三亚市政府答辩称，被上诉人作出的270号《安置方案》是不可诉的行政行为，对上诉人的权利并不产生影响。上诉人已签订补偿协议，认可征收行为。一审裁定适用法律正确，请求二审法院予以维持。
原审原告杨小君未提交意见。
原审被告吉阳区政府答辩称，一、270号《安置方案》属于房屋征收过程中的阶段性行为，不具有可诉性。制定和发布270号《安置方案》是房屋征收行为中的一个环节，是征收人作出征收决定的前置行为。270号《安置方案》与整个征收行为密不可分，应当在审查征收决定时对270号《安置方案》进行附带审查，而不能脱离征收决定单独对其进行审理。二、上诉人不是270号《安置方案》针对的对象，不是本案适格当事人，无权提起本案诉讼。上诉人不是东岸村集体经济组织成员，270号《安置方案》用以指导和约束的是对东岸村集体经济组织成员合法房屋的征收行为，不包括上诉人违法建筑的房屋，上诉人无权对270号《安置方案》提起行政诉讼，上诉人可以针对城管部门、综合执法部门查处违法建筑的行为另行起诉。三、吉阳区政府不是270号《安置方案》的制定主体和发布主体，不是本案适格被告，法院应当驳回上诉人对吉阳区政府的起诉。
原审第三人东岸村委会未提交意见。
本院认为，一、关于三亚市政府作出270号《安置方案》的行为是否属于行政行为的问题。270号《安置方案》中载明：”一、征收范围（四至范围）及基本情况。东岸棚户区改造项目范围为：东至海螺路，南至迎宾大道，西至凤凰路，北至荔枝沟路，征收面积约2940亩；具体范围四至坐标以项目规划红线的实际勘测定界为准。征收项目区域涉及东岸村委会，下有10个村民小组，户籍总人口约6900人（其中原籍人口3513人），总户数2117户（其中原籍村民780户），房屋2415栋（含原已拆除的513栋），总建筑面积约130万平方米（含原已拆除的原籍村民房屋5万平方米、外来人员房屋27万平方米）。最终数据以实际核算为准。”由此可见，270号《安置方案》是三亚市政府就东岸村棚户区这一特定范围内特定房屋征收对象的拆迁补偿安置问题制定的标准文件，270号《安置方案》对征收范围、征收补偿涉及到的人员身份的认定、征收补偿安置对象的补偿标准、其他情形人员房屋的补偿标准、外来人员房屋的补偿标准等问题作出了明确具体的规定。270号《安置方案》直接关涉人数固定、范围确定的征收补偿安置相对人的权利义务，且仅针对此次征收房屋这一件事件，不能反复适用，故三亚市政府作出270号《安置方案》的行为属于行政行为。二、关于上诉人能否就270号《安置方案》提起行政诉讼的问题。决定征收房屋是一个多阶段的行政行为，人民政府在作出房屋征收决定前，房屋征收部门应当先行拟定征收补偿方案并报人民政府，再由人民政府组织有关部门对征收补偿方案进行论证并予以公布，征求公众意见。上诉人诉请撤销的270号《安置方案》是三亚市政府作出房屋征收决定的前置行为，是阶段性行为，对被征收人及其他利害关系人的合法权益不产生独立的实际影响，对房屋被征收人及其他利害关系人的权利义务不直接产生约束力。人民法院在审理征收决定合法性时包含对被征收人及其他利害关系人安置补偿是否合法问题的审查，上诉人无权请求人民法院仅对270号《安置方案》进行司法审查。综上，一审裁定以王家淑等48人就270号《安置方案》提起行政诉讼不符合法定起诉条件为由驳回王家淑等48人的起诉并无不当，应予维持。上诉人主张能够就270号《安置方案》提起行政诉讼的上诉理由不能成立，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，裁定如下：
驳回上诉，维持原裁定。
本裁定为终审裁定。
审判长孔琼
审判员凌杰泉
审判员魏文豪
法官助理李宗帅
法官助理李宗帅
书记员闵泽帅
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