海南省高级人民法院
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（2017）琼行终201号
海南省高级人民法院
行政判决书
（2017）琼行终201号
上诉人（原审原告）吴风光，男，1954年6月19日出生，汉族，原海南省定安县居丁糖厂职工，现住海南省定安县。
委托代理人吴习武，男，汉族，1984年12月4日出生，现住海南省定安县，系吴风光之子。
被上诉人（原审被告）定安县人民政府，住所地海南省定安县定城镇兴安大道县政府大院。
法定代表人刘蔚，该县县长。
委托代理人吴云竹，定安县人民政府法制办公务员。
委托代理人符太珍，定安县国土资源局公务员。
上诉人吴风光因其诉被上诉人定安县人民政府（以下简称定安县政府）土地征收补偿一案，不服海南省第一中级人民法院（2016）琼96行初222号行政判决，向本院提起上诉。本院依法组成合议庭，对本案进行了审理，现已审理终结。
吴风光因定安县政府征收农村集体所有土地，认为定安县政府未对其被征收的218平方米的宅基地及化肥销售店的停产停业损失进行补偿，遂诉求判令：1.定安县政府在其被征收的宅基地500米范围内向其安置一块205平方米的宅基地，或者支付征收宅基地补偿款436000元；2.定安县政府向其支付停产停业补助款91000元。
原审查明，2010年7月12日，定安县政府所属的办公室作出定府办函[2010]28号《关于印发官娘脊片区基础设施建设项目用地农转用及征收报批工作方案的通知》，办理涉案土地农转用及征收农民所有土地建设该片区道路基础设施。2010年9月20日、2011年6月20日，原定安县国土环境资源局与吴风光签订了《征收集体土地青苗补偿协议书》（两份）及《房屋及其他地上附着物、构筑物拆除补偿协议书》（一份），协议补偿拆除吴风光在上述项目土地范围内的房屋、构筑物、青苗及其他附着物，共计补偿费用人民币551438元（其中青苗补偿费人民币6094元、青苗及地上附着物补偿费人民币194362元、建筑物及地上附着物补偿费人民币319482元及非农业人口土地补偿费人民币31500元）。该协议没有涉及宅基地安置及化肥销售店停业损失补偿的内容。吴风光已于上述协议签订后领取了该补偿款项。2012年11月29日，原定安县国土环境资源局与定安县定城镇多益一、二经济合作社签订《征收集体土地补偿协议书》，征收两社位于定安县塔岭工业二园项目用地(E地块)内的农民集体所有土地7.65亩（吴风光的房屋及其附着物、构筑物等在此地范围内），补偿两经济社人民币449843元，对补偿户（业）主的青苗及其地上附着物与户（业）主现场清点丈量直接进行补偿。两经济社也在该协议签订后领取了该补偿款项。之后，两经济社已经将被征收土地全部交给定安县政府，包括吴风光在内的被征收土地上的户（业）主也及时拆除或者清除了地上房屋、其他附着物及其青苗等。现在定安县政府已经在该土地上进行项目招商，建设了城市道路和工厂厂房等。此后因吴风光向定安县政府提出要求给予安置宅基地及化肥销售店停业补偿问题，定安县国土资源局（由原定安县国土环境资源局分立）于2016年3月22日作出定国土资信字[2016]1号《关于吴风光同志信访问题的答复意见》，告知吴风光不符合安排农村宅基地条件和没有依据补偿其化肥销售店停业损失。吴风光不服遂提起诉讼。原审另查明，吴风光属于定安县城镇居民，不是本案被征收土地农民集体（定安县定城镇多益一、二经济合作社）的成员。吴风光没有办理其在被征收土地上的房屋及其他构筑物、附着物等用地使用权证书。
原审认为，定安县政府于2010年6月开始征收定安县定城镇多益一、二经济合作社位于定安县塔岭工业二园项目用地(E地块)内的农民集体所有的面积为7.65亩土地，建设该片区道路基础设施，至2012年底定安县政府与被征收土地的农民集体及其被征收土地上农民或者其他户（业）主就土地、青苗、房屋及其附着物等协议补偿完毕，全部补偿款项也支付完毕，被征收的土地也交付定安县政府使用。可见，该征收土地行政行为已经实施完毕。现在吴风光认为定安县政府上述征收土地时没有给其安置宅基地并补偿化肥销售商店停业损失违法，诉请要求定安县政府安置205平方米宅基地（或给付宅基地补偿款人民币436000元）及补偿化肥销售店停业损失人民币91000元，因吴风光属于定安县城镇居民，不是本案被征收土地农民集体（定安县定城镇多益一、二经济合作社）的成员，依照《中华人民共和国土地管理法》第六十二条有关农村村民一户只能拥有一处宅基地的规定，其不能成为农村村民依法享有宅基地的主体。在诉讼中，吴风光也没有证据证实其已经取得在被征收土地上的房屋及其他构筑物、附着物的用地使用权证。同时，吴风光与定安县政府在上述征地补偿协议中也没有相应约定。因此，吴风光主张定安县政府征收土地没有给其安置宅基地没有事实根据和法律依据。吴风光请求补偿化肥销售商店停业损失也没有事实根据和法律依据。定安县政府作出征收土地行政行为没有侵害吴风光的合法权益，吴风光的诉求理由不能成立，对其诉讼请求不予支持。遂判决驳回吴风光的诉讼请求。
上诉人吴风光上诉称，原审判决认定事实不清，适用法律错误，应予撤销。一、依据《海南省土地征收补偿安置管理办法》第九条的规定，定安县政府不应只对房屋进行补偿，还应对土地进行补偿。二、不应将多益村的农用地混同于上诉人的宅基地。依据多益村的村民决定及上诉人的土地使用情况，上诉人有权领取农用地的土地补偿款及该土地的青苗补偿款。依据《海南省土地征收补偿安置管理办法》第十三条的规定，被上诉人征收了上诉人的宅基地，不论上诉人提出安置土地或支付土地补偿款，被上诉人应进行补偿安置。三、上诉人在涉案地上经营店铺是经过行政许可的，被上诉人应该对上诉人停产停业进行补助。请求撤销原审判决，改判支持上诉人的诉讼请求。
被上诉人定安县政府未提交答辩状，在本院询问时辩称，原审判决认定事实清楚，适用法律正确，上诉人的上诉请求没有法律依据。上诉人吴风光不是多益村的村民，不符合宅基地安置条件；政府在征地的时候，已经将征地补偿款按照法律的规定支付给了多益经济社；对于停产停业补偿的问题，征地时上诉人没有提出该要求，现在也没有证据能够证明停产停业的损失。请求驳回上诉，维持原判。
本院二审查明事实与原审判决查明的事实一致，本院予以确认。
本院认为，关于吴风光请求定安县政府支付土地补偿费或安置宅基地的问题。首先，根据《中华人民共和国土地管理法》第二条的规定，我国实行土地的社会主义公有制，即全民所有和劳动群众集体所有制，我国土地所有权的法律形式有国有土地所有权和农民集体土地所有权。根据本案查明的事实，本案所涉被征收的7.65亩土地原为定安县定城镇多益一、二经济合作社农民集体所有土地，吴风光所建房屋及附着物、构筑物等在被征收土地范围内。吴风光所称的”宅基地”，在未被征收前亦属于农民集体所有，吴风光主张其”宅基地”不同于多益村的农用地，没有事实根据和法律依据，理由不成立。根据《中华人民共和国土地管理法实施条例》第二十六条”土地补偿费归农村集体经济组织所有；地上附着物及青苗补偿费归地上附着物及青苗的所有者所有”的规定，本案所涉的被征收的7.65亩农民集体所有土地的土地补偿费应归农村集体经济组织所有，吴风光主张定安县政府应向其支付土地补偿费，于法无据。其次，吴风光不是农村集体经济组织成员，依照《中华人民共和国土地管理法》第六十二条有关农村村民一户只能拥有一处宅基地的规定，吴风光不属农村集体经济组织安排宅基地的对象。《海南省土地征收补偿安置管理办法》第十三条规定的补偿和安置的被拆迁人是”征地过程中拆迁农民房屋”的农民，显然，吴风光不是该条规定的被拆迁人，其主张定安县政府应依照该条的规定对其进行补偿和安置，理由亦不成立。吴风光上述请求没有事实根据和法律依据，本院不予支持。
关于吴风光请求定安县政府补偿化肥销售店停产停业损失的问题。本院认为，根据本案查明的事实，原定安县国土环境资源局与吴风光签订了《征收集体土地青苗补偿协议书》《房屋及其他地上附着物、构筑物拆除补偿协议书》，并向吴风光支付了协议约定的全部补偿款项，吴风光亦按照协议约定履行了拆除清理的义务，显然，定安县政府已依法对吴风光进行了补偿。吴风光现主张定安县政府还应补偿其停产停业损失，没有事实根据和法律依据，本院不予支持。
综上，原审判决驳回吴风光的诉讼请求并无不当，应予维持。吴风光的上诉理由和请求不能成立，应予驳回。依照《中华人民共和国行政诉讼法》第八十九条第一款第（一）项的规定，判决如下：
驳回上诉，维持原判。
二审案件受理费50元，由上诉人吴风光负担。
本判决为终审判决。
审判长王华
审判员黄胜敏
审判员麻红丽
书记员黄蜀
附：本判决适用的相关法律依据
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（一）原判决认定事实和适用法律正确、量刑适当的，应当裁定驳回上诉或者抗诉，维持原判；
（二）原判决认定事实没有错误，但适用法律有错误，或者量刑不当的，应当改判；
（三）原判决事实不清楚或者证据不足的，可以在查清事实后改判；也可以裁定撤销原判，发回原审人民法院重新审判。
原审人民法院对于依照前款第三项规定发回重新审判的案件作出判决后，被告人提出上诉或者人民检察院提出抗诉的，第二审人民法院应当依法作出判决或者裁定，不得再发回原审人民法院重新审判。
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