海南省高级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼行终1167号
海南省高级人民法院
行政判决书
（2017）琼行终1167号
上诉人（原审原告）戴烈霞，女，1961年2月14日出生，汉族，住海口市。
委托代理人魏巍，北京京平律师事务所律师。
委托代理人陶朦朦，北京京平律师事务所律师。
被上诉人（原审被告）海口市琼山区人民政府，住所地海口市琼山区建国路1号。
法定代表人陈昊旻，区长。
委托代理人黄崇莉，海口市琼山区人民政府法制办主任。
委托代理人张鑫彤，北京德和衡（海口）律师事务所律师。
上诉人戴烈霞因其诉被上诉人海口市琼山区人民政府（以下简称琼山区政府）房屋行政补偿一案，不服海南省海口市中级人民法院（2017）琼01行初236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。审理期间，本院组织当事人进行协调未果。本案现已审理终结。
2016年7月6日，琼山区政府就位于海口市龙昆南一横路10号的房屋，作出《海口市琼山区人民政府征收补偿决定》（以下简称《征收补偿决定》），决定对涉案房屋实施征收，货币补偿总额为1456194.54元，实物补偿总额则为1282029.34元。戴烈霞不服，提起诉讼，请求撤销《征收补偿决定》。
原审查明，涉案房屋位于海口市龙昆南一横路10号，建筑面积378.62平方米，用地面积71.7平方米，附属物为女儿墙32.91平方米。2015年12月2日，琼山区政府作出《海口市琼山区人民政府关于海口市琼山区红城湖片区棚户区（城中村）改造项目房屋征收的决定》（琼山府[2015]15号）（以下简称《征收决定》），决定征收包括涉案房屋在内的建筑物。经海南中兴华土地房地产估价有限公司评估，涉案房屋评估重置单价1654.4元/平方米，控制成新率为88%；土地评估单价4797元/平方米；室内装修250元/平方米；女儿墙80元/平方米。之后，双方就涉案房屋，未能达成征收补偿协议。2016年7月6日，琼山区政府就涉案房屋作出《征收补偿决定》，根据《国有土地上房屋征收与补偿条例》（以下简称《条例》）第十七条、第二十一条、第二十六条、第二十八条及《海口市红城湖片区棚户区（城中村）改造项目征收补偿方案》（以下简称《方案》）的有关规定，决定：”一、对被征收人戴丽霞名下位于龙昆南一横路10号的房屋实施征收，限被征收人戴丽霞于收到本决定书之日起10日内与海口市琼山区红城湖片区棚户区（城中村）改造项目指挥部办理征收补偿手续，并按协议约定时间完成搬迁。二、被征收人选择货币补偿的，根据海南中兴华土地房地产估价有限公司对房屋、室内装修及附属物的评估和《方案》的规定，被征收人应得的补偿数额为：房屋补偿款、土地补偿款、室内装修及附属物补助费共计人民币1067621.9元；水、电、电视、电话、管道燃气迁移费共计人民币1560元；搬迁补助费人民币8392.64元（按被征收房屋建筑面积22元/平方米的标准支付）；货币安置奖励人民币378620元（参照《方案》第二十三条执行），合计人民币1456194.54元，全部存于海口市琼山区重点项目推进管理委员会账户内。三、被征收人选择实物补偿的，根据海南中兴华土地房地产估价有限公司对房屋、室内装修及附属物的评估和《方案》的规定，被征收人应得的补偿数额为：房屋补偿款、土地补偿款、室内装修及附属物补助费共计人民币1067621.9元；水、电、电视、电话、管道燃气迁移费共计人民币1560元；搬迁补助费人民币8392.64元（按被征收房屋建筑面积22元/平方米的标准支付）；临时过渡安置费204454.8元（按被征收房屋建筑面积每平方米18元/月的标准支付，先期支付30个月），合计人民币1282029.34元，全部存于海口市琼山区重点项目推进管理委员会账户内。被征收人在按照《方案》对征收补偿及购买的商品房价款进行差价结算后，根据《方案》第六条确定的商品房购买相关规定执行。四、《海口市房屋征收补偿安置暂行办法》第二十四条第二款规定：'被征收人不配合征收，在120日的签约期限内未签订补偿协议的，不享受本条规定的按时签约奖励，市相关职能部门应按《中华人民共和国土地管理法》和《中华人民共和国行政强制法》有关规定，依法收回土地使用权，强制拆除地上物。'根据上述规定，限你于2016年7月16日前与指挥部签订征收补偿安置协议。否则，将由市相关职能部门依法收回土地使用权，强制拆除地上物”。之后，琼山区政府将该决定送达给戴烈霞。
原审认为，《条例》第二十六条第一款规定：”房屋征收部门与被征收人在征收补偿方案确定的签约期限内达不成补偿协议，或者被征收房屋所有权人不明确的，由房屋征收部门报请作出房屋征收决定的市、县级人民政府依照本条例的规定，按照征收补偿方案作出补偿决定，并在房屋征收范围内予以公告。”本案中，双方就涉案房屋未能达成征收补偿协议。琼山区政府依法作出《征收补偿决定》具有事实根据和法律依据。涉案房屋的价值已经海南中兴华土地房地产估价有限公司进行评估，符合《条例》第十九条第一款”被征收房屋的价值，由具有相应资质的房地产价格评估机构按照房屋征收评估办法评估确定”的规定。戴烈霞对涉案房屋的评估价值存有异议，本应根据《条例》第十九条第二款”对评估确定的被征收房屋价值有异议的，可以向房地产价格评估机构申请复核评估。对复核结果有异议的，可以向房地产价格评估专家委员会申请鉴定”的规定进行处理，但戴烈霞至今未能举证证明其已申请复核、鉴定，且未申请司法鉴定不能对抗涉案房屋价值已经评估确定的事实。因此，琼山区政府根据海南中兴华土地房地产估价有限公司的评估结果作出《征收补偿决定》，且提供了货币补偿和房屋产权调换两种方式以供选择，并无不妥。综上，依照《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》第五十六条第（四）项之规定，判决驳回戴烈霞的诉讼请求。案件受理费50元，由戴烈霞负担。
上诉人戴烈霞上诉称，一、《征收补偿决定》所依据的评估结果不合法，《征收补偿决定》不合法。（一）评估机构的产生不符合法律规定，评估报告不合法。琼山区政府未举证证明海南中兴华土地房地产估价有限公司系经过法定的程序选定，上诉人也从未参与或被通知参与选定评估机构，对海南中兴华土地房地产估价有限公司作为评估机构在诉讼前毫不知情，琼山区政府也未举证证明其向海南中兴华土地房地产估价有限公司依法委托授权并签订委托合同。（二）海南中兴华土地房地产估价有限公司出具的评估结果未经法定程序，也不是合法的评估报告。评估公司从未对被征收的房屋进行评估，没有评估师对被征收的房屋进行实地查勘，上诉人从未收到初步分户报告、初步评估之后的公示、评估师解释、附2位评估师签字的整体评估报告和分户评估报告。海南中兴华土地房地产估价有限公司所谓的评估报告从未向上诉人送达，也不具有法定形式，原审认定海南中兴华土地房地产估价有限公司已对上诉人的房屋价值进行评估没有事实根据。（三）上诉人从未收到分户评估报告，无法据此申请复核和鉴定，原审认定上诉人未举证证明申请复核和鉴定、未经鉴定不得对抗房屋价值已经评估的事实，认定事实不清，原审要求上诉人申请司法鉴定代替评估报告也没有法律依据。二、《征收补偿决定》缺少法定事项。《征收补偿决定》未提供用于调换的房屋清单、产权、位置、地点、面积等基本信息，未载明补偿支付期限、搬迁期限和过渡期限，将上诉人的部分商铺性质的房屋作为普通住宅补偿，遗漏被征收人。三、《征收补偿决定》程序违法。房屋征收部门并未在《征收补偿决定》作出前向琼山区政府依法进行报请程序，琼山区政府作出《征收补偿决定》后也未依法在征收范围内进行公告。四、原审分配举证责任错误。本案依法应由琼山区政府举证证明其行政行为的合法性，原审却以上诉人未证明《征地补偿决定》违法为由驳回其诉请，适用法律错误。综上，请求撤销原判，撤销《征收补偿决定》，一、二审案件受理费由琼山区政府负担。
被上诉人琼山区政府答辩称，一、原审认定事实清楚，适用法律正确。涉案房屋位于琼山区政府此次征收范围内，琼山区政府依法进行征收。原审认定琼山区政府的征收补偿行为合法，认定事实清楚，适用法律正确。二、上诉人在原审中主张被上诉人的《征收补偿决定》损害其合法权益，原审也围绕其主张对《征收补偿决定》的合法性进行审查。上诉人的上诉理由超过原审的审查范围，对于超出的部分依法应不予审查。三、《征收补偿决定》所依据的评估结果合法。（一）评估机构的产生合法，评估结果合法。海南中兴华土地房地产估价有限公司系经征收所涉的三个街道办通过组织居民或居民代表协商选定，具有相应的法定资质。海口市琼山区重点项目推进管理委员会在其合法产生后依法授权委托对征收片区内的房地产进行评估。海口市琼山区重点项目推进管理委员会与海南中兴华土地房地产估价有限公司之间的授权委托合约及手续不属于依法应予公开的信息。（二）海南中兴华土地房地产估价有限公司严格依法进行评估，其评估结果得到了绝大部分被征收人的认可，琼山区政府依据海南中兴华土地房地产估价有限公司出具的评估结果顺利完成了片区95.12%的征收工作，海南中兴华土地房地产估价有限公司的评估结果正确、合法。（三）上诉人不依法积极履行协助、配合海南中兴华土地房地产估价有限公司对涉案房屋进行评估的义务，海南中兴华土地房地产估价有限公司只好依据被征收房屋所在小区的普遍状况，给予被征收房屋”有保留”的评估，琼山区政府在《征收决定》中特别说明了其确定的装修标准仅供参考，最终结果以入户调查后评估结果为准。上诉人如对该分户评估结果不服，应积极配合，为入户评估提供便利。四、琼山区政府作出的《征收补偿决定》合法。（一）海口市琼山区重点项目推进管理委员会在琼山区政府作出《征收补偿决定》前已依法进行了报请程序，该报请程序属于征收人与征收部门之间的内部工作程序，不属于依法公开的信息范围。（二）琼山区政府在《征收补偿决定》中告知了上诉人被征收房屋的基本情况及征收评估价格，提供了货币补偿和选择回购安置房两种补偿方式，并计算出了相应的补偿明细，规定了选择回购安置房安置的办理办法，明确了签订补偿协议的期限，提供了不服补偿决定的救济途径等事项。琼山区政府从上诉人的实际及所属房屋的具体情况出发，作出《征收补偿决定》合法。（三）涉案被征收土地和房屋性质分别为宅基地和住宅，不满足按商铺补偿的条件，上诉人也未充分举证证明被征收房屋符合规定的”自改铺面”的情形，不能享受相应的补助。在对涉案被征收房屋的调查结果公示期间，上诉人及其他继承人并未提出异议，也未履行协助、配合义务，未积极主动向负责征收的部门提供、告知其家庭成员情况、应由上诉人及相关人承担因此产生的后果。（四）琼山区政府在作出《征收补偿决定》后依法送达上诉人，并依法告知其申请行政复议和提起行政诉讼的权利，充分保障了上诉人的救济权利，保障了上诉人对征收补偿决定中记载事项的知情权及对于涉案房屋的征收补偿权益。综上。原审认定事实清楚，程序合法，适用法律正确。请求驳回上诉，维持原判。
二审中，琼山区政府提交了六组证据材料：1.海口市琼山区重点项目推进管理委员会《关于组织推选评估公司的函》及北官、龙昆南、道客、米铺四个社区居委会《关于红城湖片区棚改项目房屋征收价格评估单位选聘确认书》；2.《房地产估价委托书》；3.《房屋征收估价业务约定书》；4.海南中兴华土地房地产估价有限公司《报告书》；5.《海口市红城湖片区棚户区（城中村）改造项目征收货币化安置协议》（样本）；6.《海口市红城湖片区棚户区（城中村）改造征收项目集中购买住房协议》（样本）。琼山区政府拟以上述证据材料证明评估机构选定程序及评估结果合法，并已向被上诉人提供了多种安置方式。本院认为，根据《中华人民共和国行政诉讼法》第三十四条及《最高人民法院关于行政诉讼证据若干问题的规定》第一条的规定，琼山区政府应在收到起诉状副本之日起10日内，提供据以作出《征收补偿决定》的全部证据，琼山区政府在二审提供证据材料不符合上述规定，本院不予采纳。
二审经审理查明，琼山区政府在作出《征收补偿决定》前，未将分户的初步评估结果在征收范围内向被征收人公示，亦未向被征收人转交分户评估报告。
二审经审理查明的其他事实与原审判决认定的事实一致。
本院认为，《条例》第十九条规定：”被征收房屋的价值，由具有相应资质的房地产评估机构按照房屋征收评估办法评估确定。对评估确定的被征收房屋价值有异议的，可以向房地产价格评估机构申请复核评估。对复核结果有异议的，可以向房地产价格评估专家委员会申请鉴定。”《国有土地上房屋征收评估办法》第十六条、第十七条规定，房地产价格评估机构应当按照房屋征收评估委托书或者委托合同的约定，向房屋征收部门提供分户的初步评估结果。分户的初步评估结果应当包括评估对象的构成及其基本情况和评估价值。房屋征收部门应当将分户的初步评估结果在征收范围内向被征收人公示，并应当向被征收人转交分户评估报告。在本案中，琼山区政府在作出《征收补偿决定》前，未将分户评估结果在征收范围内公示，亦未向被征收人转交分户评估报告，而涉案被征收人实际上对被征收房屋价值有异议却无从行使申请复核评估、申请鉴定的权利，程序违法。综上，琼山区政府作出的《征收补偿决定》程序违法，应予撤销。原审判决认定事实不清，适用法律错误，应予撤销。依照《中华人民共和国行政诉讼法》第八十九条第一款第（二）项、第八十九条第三款、第七十条第（三）项之规定，判决如下：
一、撤销海南省海口市中级人民法院（2017）琼01行初236号行政判决；
二、撤销海口市琼山区人民政府于2016年7月6日对戴烈霞作出的《海口市琼山区人民政府征收补偿决定》。
一、二审案件受理费共100元，由被上诉人海口市琼山区人民政府负担。
本判决为终审判决。
审判长王华
审判员聂海波
审判员刘利红
二○一七年十二月七日
法官助理周磊
书记员黄蜀
{条文}
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