海南省三亚市中级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼02行终39号
上诉人（原审起诉人）白力环，男，汉族，1978年3月21日出生，住三亚市。
上诉人白力环诉三亚市公安局、三亚市公安局交通警察支队行政赔偿一案，不服三亚市城郊人民法院（2017）琼0271行初38号行政裁定，向本院提出上诉。本院受理后，依法组成合议庭审理了本案。
原审法院认为，本案性质为单独提起的行政赔偿诉讼。根据《中华人民共和国国家赔偿法》第九条第二款、《最高人民法院关于审理行政赔偿案件若干问题的规定》第四条第二款、第二十一条第（五）项的规定，赔偿请求人单独提起行政赔偿诉讼，应当先向赔偿义务机关提出。须以赔偿义务机关先行处理为前提。赔偿请求人对赔偿义务机关确定的赔偿数额有异议或者赔偿义务机关逾期不予赔偿，赔偿请求人方有权向人民法院提起行政赔偿诉讼。本案原告作为行政赔偿的赔偿请求人单独提起行政赔偿诉讼，应当先向赔偿义务机关即被告提出，以赔偿义务机关即被告已先行处理并作出行政赔偿决定为前提。原告提供的证据未能证明其已将行政赔偿请求向被告具体提出，也未能证明被告已对其行政赔偿请求作出过行政赔偿处理决定，原告的起诉不符合单独提起行政赔偿诉讼案件的法定起诉和受理条件，对原告的起诉应不予受理立案。依照《中华人民共和国国家赔偿法》第九条第二款；《最高人民法院关于审理行政赔偿案件若干问题的规定》第四条第二款、第二十一条第（四）、（五）项；《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（十）项的规定，裁定对起诉人白力环的起诉不予受理。
上诉人上诉称，原告曾于2016年10月，依照《中华人民共和国国家赔偿法》、《公安机关办理国家赔偿案件程序规定》等有关规定，就有关费用分别向三亚市交警支队和三亚市公安局申请国家赔偿。三亚市交警支队法制大队违反《中华人民共和国国家赔偿法》第十三条规定，拒不作出任何书面决定；三亚市公安局法制科作出了不予任何赔偿的书面决定。原告依据《中华人民共和国国家赔偿法》第九条、第十四条、第十六条第二款等规定，向三亚市城郊法院提起行政赔偿诉讼。2017年2月22日，原告收到三亚市城郊法院作出的不予立案裁定书。
上诉人认为，一审法院未调查和询问案件当事人、以”原告提供的证据未能证明其已将行政赔偿请求向被告具体提出、也未能证明被告已对其行政赔偿请求作出过行政赔偿处理决定”为由，驳回原告的起诉，其行为严重违法。理由如下：
一、一审法院违反《最高人民法院关于适用〈中华人民共和国行政诉讼法〉若干问题解释》第三条第二款”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”的规定。不调查、不询问当事人，而径行裁定驳回原告的起诉，违法审理本案。
二、原告在向一审法院提起行政赔偿诉讼之前，已经向两被告提出了国家赔偿请求、被告三亚市交警支队超过法定期限不做出任何书面材料，诉状中附有被告三亚市公安局不予赔偿的书面决定。因此，原告提起行政赔偿诉讼的前提也符合《中华人民共和国国家赔偿法》第九条第二款、《最高人民法院关于审理行政赔偿案件若干问题的规定》第四条第二款和第二十一条第五项等法律规定的”先向赔偿义务机关提出赔偿”、”赔偿义务机关不予赔偿”、”赔偿义务机关超过法定期限不予处理”等要求。
一审法院违法审理案件，既没有调查和询问当事人，又没有要求当事人提供或补充证据，更没有对原告提供的证据加以审查。因此，一审法院依据《中华人民共和国国家赔偿法》第九条第二款、《最高人民法院关于审理行政赔偿案件若干问题的规定》第四条第二款和第二十一条第五项等规定，认为”原告提供的证据未能证明其已将行政赔偿请求向被告具体提出、也未能证明被告已对其行政赔偿请求作出过行政赔偿处理决定”的说法，与事实不符。
三、一审法院驳回原告起诉的法律依据与事实相悖。1、一审法院把原告已经遵守的《中华人民共和国国家赔偿法》第九条第二款、《最高人民法院关于审理行政赔偿案件若干问题的规定》第四条第二款和第二十一条第五项等规定，作为驳回原告诉讼的法律依据，其行为不合法。
2、《最高人民法院关于审理行政赔偿案件若干问题的规定》第三条规定”赔偿请求人认为行政机关及其工作人员实施了国家赔偿法第三条第（三)、（四）、（五)项和第四条第（四）项规定的非具体行政行为的行为侵犯其人身权、财产权并造成损失，赔偿义务机关拒不确认致害行为违法，赔偿请求人可直接向人民法院提起行政赔偿诉讼”。原告在诉状中对遭受到的人身伤害和财产损失、对赔偿义务机关违法行为等描述，与此规定相符。因此，原告提起的行政赔偿诉讼合法。
一审法院依据《最高人民法院关于审理行政赔偿案件若干问题的规定》第二十一条第四项”赔偿请求人单独提起行政赔偿诉讼，应当符合'加害行为为具体行政行为的，该行为已被确认为违法'的条件”的规定，认定赔偿义务机关给原告造成的伤害和损失是具体的行政行为，且没有被确认违法。一审法院违法审理案件，不调查和询问当事人、罔顾事实，并把此法规作为驳回原告起诉的法律依据，其行为不合法。
3、一审法院无法说明原告的起诉还不符合其他什么样的法定起诉条件，却把《最高人民法院关于适用〈中华人民共和国行政诉讼法〉若干问题解释》第三条第十项”不符合其他法定起诉条件的”规定，作为驳回原告起诉的法律依据，无任何说服力。
综上，一审法院违法审理案件、歪曲事实、枉法裁判，其裁定书所编造的理由和所依据的法律条文，均不成立。请求二审法院依法查明事实，驳回一审法院裁定，直接审理本案，支持上诉人向一审法院提出的诉讼请求。
本案经审查认为，上诉人白力环起诉时所递交的证据材料并没有向三亚市交警支队提交的申请国家赔偿书及向三亚市公安局提交的国家赔偿书。其所述称”在向一审法院提起行政赔偿诉讼之前，已经向两被告提出了国家赔偿请求、被告三亚市交警支队超过法定期限不做出任何书面材料，诉状中附有被告三亚市公安局不予赔偿的书面决定”仅为单方陈述，并不完全符合事实。上诉人所称的”三亚市公安局不予赔偿的书面决定”全称为《三亚市公安局国家赔偿申请不予受理通知书》，该通知告知上诉人三亚市公安局不是本案的赔偿义务机关，决定不予受理其提出的国家赔偿申请。不是上诉人所称的不予赔偿书。故一审法院认定上诉人在提起本案行政赔偿诉讼前，未按《最高人民法院关于审理行政赔偿案件若干问题的规定》第四条第二款规定，先行经过赔偿义务机关处理的事实清楚。上诉人的上诉理由没有事实依据，不予支持。本案系对一审法院作出的不予受理裁定的程序审查，不涉及案件实体法律关系的审理，关于上诉人提出的由二审法院直接审理本案，并支持上诉人一审所提出的赔偿诉讼请求，系实体方面审理内容，本院不予审理。
综上，一审法院以上诉人单独提起行政赔偿诉讼应当先向赔偿义务机关提出，以赔偿义务机关已先行处理并作出行政赔偿决定为前提。上诉人未能提供的证据证明其已将行政赔偿请求向被告具体提出，也未能证明被告已对其行政赔偿请求作出过行政赔偿处理决定，其起诉不符合单独提起行政赔偿诉讼案件的法定受理条件，作出不予受理起诉的行政裁定，符合法律有关规定，应予维持。上诉人的上诉理由没有法事实根据，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。
审判长李宝鹏
审判员林元贵
审判员尤忠文
法官助理陈永华
法官助理陈永华
书记员邢华云
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