海南省海口市中级人民法院
p t ; ” > 行 政 判 决 书
（2016）琼01行初385号
原告吴旺，男，1983年10月17日出生，汉族，住海口市。
委托代理人高红梁，海南颖川律师事务所律师。
被告海口市秀英区人民政府。住所地海口市秀英区秀华路*号。
法定代表人王业天，区长。
委托代理人周家靖，海南维特律师事务所律师。
委托代理人谭传浪，男，1977年10月1日出生，汉族，系海口市秀英区房屋征收局工作人员。
原告吴旺因不服被告海口市秀英区人民政府（以下简称秀英区政府）作出的房屋征收补偿决定，于2016年11月28日向本院提起诉讼。本院于同日立案后，依法组成合议庭，于2016年12月20日公开开庭审理了本案。原告吴旺及其委托代理人高红梁，被告秀英区政府的委托代理人周家靖、谭传浪到庭参加诉讼。本案现已审理终结。
被告于2016年9月13日向原告作出秀府决字（2016）27号《房屋征收补偿决定书》（以下简称27号征收补偿决定）。
被告于2016年12月14日向本院提供了作出被诉行政行为的证据：
1、海口市人民政府关于征收长流镇集体土地补偿方案的通告；2、建设用地规划许可证；3、海口市秀英区房屋征收办公室关于长兴路中、西段用地项目房屋征收调查通告及现场张贴照片；4、海口市秀英区房屋征收办公室关于长兴路中、西段用地项目房屋及附属物征收调查结果公示及现场张贴照片；5、海口市秀英区长兴路中、西段用地项目房屋征收调查统计表；6、海口市秀英区长兴路中、西段用地项目房屋、附属物现场调查、复核表；7、海口市秀英区长兴路中、西段用地项目房屋征收社会稳定风险评估报告；8、海口市秀英区人民政府关于长兴路中、西段用地项目房屋征收的决定及现场张贴照片；9、公文呈批表；10、海口市秀英区长兴路中、西段用地项目房屋征收补偿费用预算表；11、海口市秀英区长兴路中、西段用地项目征收补偿安置方案及现场张贴照片；12、关于推选房屋征收评估单位的确定书；13、房地产估价业务约定书、房地产征收估价委托书；证据1-13证明：长兴路中、西段项目房屋征收程序合法。14、关于确认长兴路中、西段项目涉及住宅地来源情况；15、土地登记信息资料；16、土地交换证明书；17、现场测量图；18、房地产征收评估分户报告；19、海口市秀英区长兴路中、西段用地项目房屋征收补偿明细表；20、协商照片；21、27号征收补偿决定及现场张贴照片；证据14-21证明：1、经迈万村确认，吴旺被征收房屋（房屋编号：A8）非法占地；2、经过协商不能达成一致，在签约期内，吴旺未进行签约，秀英区政府遂依法作出房屋征收补偿决定。
原告吴旺诉称：一、被告所作出的27号征收补偿决定认定事实错误。本案中，原告现住房屋宅基地为1980年8月20日康安二队与康安七对交换所取得，一直由吴旺父母使用。1993年，吴旺父母在该宅基地修建房屋居住。后吴旺结婚单独分户，2011年7月，吴旺将旧房子拆除，重新在宅基地上修建现在的房屋，一家人居住至今，该宅基地为吴旺唯一的宅基地，也是一家人赖以生存的基础。以上事实有同村村民的”证明”、”土地权属来源证明”、”土地交换证明书”予以证实，因为以上事实被告认定错误，所以被告在征收迈万村原告与其他村民的房屋时作出不同的补偿标准。
二、被告所作出的27号征收补偿决定适用法律错误。依据《国有土地上房屋征收与补偿条例》第一条规定：”为了规范国有土地上房屋征收与补偿活动，维护公共利益，保障被征收房屋所有权人的合法权益，制定本条例”，也就是说该条例的适用范围为国有土地上房屋，而本案原告为农村宅基地上房屋。因此，被告适用该条例征收原告房屋而不对原告宅基地进行补偿系适用法律法规错误。
三、被告所作出的27号征收补偿决定违反法定程序。首先，根据《中华人民共和国土地管理法》的规定，征地补偿方案应当遵从严格的法定程序，特别是补偿安置方案作出必须听取被征收人意见、举行听证等程序。但本案的《海口市秀英区长兴路中、西段用地项目征收补偿安置方案》未经上述程序严重侵犯了原告的知情权与参与权。其次，被告作出27号征收补偿决定也没有告知原告听证权利，没有组织原告听证，明显属程序违法。
四、被告对原告的安置补偿过低。依据《国有土地上房屋征收与补偿条例》规定，对被征收房屋的补偿，应参照就近区位的新建商品房的价格，以被征收人在房屋被征收后居住条件、生活质量不降低为宜。而本案中，原告房屋框架评估单价为1880元/平方米，装修评估单价为300元/平方米，该补偿标准明显低于法定的”类似房地产的市场价格”，这与原告房屋就近区位的房地产的市场价格相差甚远，应当确认该补偿标准违法。
五、被告认定货币补偿的补偿方式错误。依据《国有土地上房屋征收与补偿条例》第21条规定，被征收人可以选择货币安置，也可以选择房屋产权调换，原告可以选择房屋产权调换。本案中，被告单方面提供货币补偿的补偿方式，剥夺了原告应有的选择权是错误的。
综上，特诉请求撤销被告作出的27号征收补偿决定。
原告为证明其主张，向本院提交如下证据：1、27号征收补偿决定；证明：2016年9月13日，被告征收原告房屋，但是该决定认定事实错误，适用法律错误、程序违法。2、土地交换证明书；证明：原告的宅基地系土地交换所取得；3、土地权属来源证明；证明：2016年，原告申报办理宅基地土地证书，经村民小组、村委会以及镇政府同意申报，原告的宅基地具有合法性。4、户口本；5、证明；证据4、5证明：原告的宅基地为1980年8月20日康安二队与康安七对交换所取得，一家人居住使用至今。
被告秀英区政府辩称：因长兴路中、西段城市道路建设的需要，政府决定对秀英区南海大道与长滨路海口市××区部分集体所有土地进行征收。该项目是永秀花园小区周边道路配套的重点项目。2016年4月8日，被告作出《海口市秀英区人民政府关于长兴路中、西段用地项目房屋征收的决定》，并于4月16日在迈万村张贴公告。原告未在120天的签约期内（即2016年8月14日前）与被告签订房屋征收拆迁协议，被告遂作出被诉房屋征收补偿决定书，并于21日于现场公告。被告作出的27号征收补偿决定，认定事实清楚，适用法律正确，内容适当，程序合法，理由如下：
一、原告被征收房屋属非法占地，被告认定事实清楚。长兴路中、西段项目启动后，海口市秀英区房屋征收局及房屋评估机构经现场调查，确认原告被征收房屋框架面积409.03平方米，女儿墙面积33.45平方米，硬化地面面积9.87平方米，不锈钢水箱1个。上述调查结果于2015年12月29日在迈万村予以公示，在7天的异议期限内，原告未提出异议。2016年2月26日，原告所在村组迈万村召开会议，因吴旺、吴大明建房土地未经过村小组分配，是占用土地的行为，讨论决定未通过确认该二户被征收房屋宅基地。因原告在诉讼中提出了在行政程序中未提出的证据，即”证明”，拟证明原告征收房屋在当年交换的土地上，故被告前往海口市国土大厦调查核实，经确认，吴旺、谭连玉在迈万村有347.21平方米宅基地，土地来源为1988年3月村（队）分地。经仔细核对土地坐标，涉案房屋未在该347.21平方米宅基地范围内，该347.21平方米的宅基地也未在本次征收范围内。因此，原告被征收房屋（房屋编号：A8）不能获得宅基地补偿款。
二、原告作出27号征收补偿决定，适用法律正确，内容适当，程序合法。秀英区房屋征收局工作人员多次与原告协商房屋征收补偿事宜，但均未能达成协议，在签约期限过后，被告遂依据《国有土地上房屋征收与补偿条例》第二十六条，以房屋评估机构作出的房屋评估报告为基础，作出被诉房屋征收补偿决定。征收补偿决定对原告房屋、附属物补偿费，搬家、水表、电话、电话迁移等补助费用都做了明确约定，因此被诉行政行为适用法律并无不当。
对于原告提出的在集体土地上进行房屋征收不应当适用《国有土地上房屋征收与补偿条例》这一观点，被告认为，根据《中共中央纪委办公厅、监察部办公厅关于加强监督检查进一步规范征地拆迁行为的通知》（中纪办发[2011]8号），在《中华人民共和国土地管理法》等法律法规作出修订之前，集体土地上房屋拆迁，要参照新颁布的《国有土地上房屋征收与补偿条例》的精神执行。被告适用《国有土地上房屋征收与补偿条例》作出被诉房屋征收补偿决定书并无不当。
综上，27号征收补偿决定作出之前，房屋征收部门、评估机构依法进行前期调查，评估等工作，并及时将调查结果予以公示，在与原告进行房屋征收协商时，也将相应的房屋评估结果送达给原告。27号征收补偿决定作出之后，依法在房屋征收范围内予以公告，被告作出的27号征收补偿决定的行政行为，程序合法。
经审理查明：因长兴路中、西段城市道路建设需要，海口市人民政府分别于2015年10月30日、2015年12月3日作出海府[2015]103、131号《关于长兴路西段项目征收长流镇集体土地补偿方案的通告》、《关于征收秀英区长流镇集体土地补偿方案的通告》，内容包括征收长流镇集体土地的补偿方案进行通告，确定了征收土地范围、补助费标准、安置方式等内容，并要求土地所有权人、使用权人在指定期限内持证明材料办理征地补偿登记。原告涉案房屋在此次征收范围内。长兴路中、西段项目启动后，海口市秀英区房屋征收局及房屋评估机构经现场调查，作出”现场测量图”，确认原告房屋编号A8，房屋框架面积409.03平方米，女儿墙面积33.45平方米，硬化地面面积9.87平方米，不锈钢水箱1个。海口市秀英区房屋征收办公室于2015年12月7日作出《关于长兴路中、西段用地项目房屋征收调查通告》，并于2015年12月29日在迈万村张贴《关于长兴路中、西段土地房屋及附属物征收调查结果数据公示》，公示期内无人提出异议。在公布《海口市秀英区长兴路中、西段用地项目征收补偿安置方案》之后，2016年4月8日，被告作出《海口市秀英区人民政府关于长兴路中、西段用地项目房屋征收的决定》并于4月16日在迈万村张贴公告。经推选，海南中兴华土地房地产估价有限公司作为该项目评估机构。因原告未在120天的签约期内（即2016年8月14日前）与被告签订房屋征收拆迁协议，秀英区房屋征收局工作人员经与原告协商未果，在签约期限过后，被告遂依据《国有土地上房屋征收与补偿条例》第十七条第一款、第二十一条、第二十六条，以房屋评估机构作出的房屋评估报告为基础，作出27号征收补偿决定，对原告房屋、附属物、搬家、水电、电话、电视、迁移费用作出货币补偿，共计863928.00元。原告不服，遂成讼。
另查：1980年8月20日，”土地交换证明书”中，康安二队与康安七队（即迈万村）生产队委会协商，将二队三亩土地与七队二亩二分土地交换。根据原告提交的”土地权属来源证明”的记载，原告使用的土地面积：162.24平方米，土地来源类型：由2011年7月未经队安排已使用（占地），土地使用起始日期：2011年7月；土地使用现状：已建房子。2016年11月10日，迈万村民小组出具证明证实原告家人原居住于康安文彬村，于1980年由当地政府牵头，通过土地互换迁到迈万村民小组，现吴旺所建房产均属当年互换土地范围内。2010年4月30日，被告向吴旺、谭连玉颁发海口市集用（2010）063577号集体土地使用证，土地座落长流镇康安村民委员会迈万经济合作社，土地用途农村宅基地，使用权面积347.21平方米，宅基地来源方式为1988年3月村（队）分地，该土地不在涉案征收土地范围内。被告提供的坐标图显示，原告被征收房屋（房屋编号：A8）房屋所占土地未在上述宅基地范围内，不在交换土地范围内。
以上事实，有海府[2015]103《关于长兴路西段项目征收长流镇集体土地补偿方案的通告》、海府[2015]131号《关于征收秀英区长流镇集体土地补偿方案的通告》、《关于长兴路中、西段用地项目房屋征收调查通告》、《关于长兴路中、西段土地房屋及附属物征收调查结果公示》、张贴照片、《海口市秀英区长兴路中、西段用地项目征收补偿安置方案》《海口市秀英区人民政府关于长兴路中、西段用地项目房屋征收的决定》、”现场测量图”、”房地产征收评估分户报告”、27号征收补偿决定、”吴旺、谭连玉用地坐标表”、海口市集用（2010）063577号集体土地使用证、”土地权属来源证明”、”土地交换证明书”、”证明”及开庭笔录等在案为凭，足资认定。
本院认为：因长兴路中、西段城市道路建设需要，海口市人民政府依法对长兴路中、西段项目征收的长流镇集体土地进行补偿。原告迈万村涉案房屋在此次征收土地范围内。根据补偿方案，海口市秀英区房屋征收局及房屋评估机构对原告土地及房屋进行现场调查，确认原告房屋编号A8，对原告地上建筑物框架面积、附属物面积等进行测量，之后将包括原告在内的房屋调查结果进行通告并张贴公示。在被告公布《海口市秀英区长兴路中、西段用地项目征收补偿安置方案》及作出《海口市秀英区人民政府关于长兴路中、西段用地项目房屋征收的决定》后，因原告未在安置方案规定的120天的签约期（即2016年8月14日）内与被告协商一致，未签订房屋征收拆迁协议，在签约期限届满后，被告根据调查结果，并以房屋评估机构作出的房屋评估报告为依据，根据《国有土地上房屋征收与补偿条例》第十七条第一款、第二十一条、第二十六条的规定，作出27号征收补偿决定并无不当。
关于原告主张被告未对其房屋所占土地进行补偿不合法的问题。根据原告提交的”土地权属来源证明”的记载，原告现使用的162.24平方米土地是在未经队安排的情况下自2011年7月已使用的土地，属占地行为。根据被告提供的土地坐标图显示，涉案房屋所占土地未在原告所称的交换的土地范围内。故被告未对原告涉案房屋所占土地进行补偿并无不当。原告关于被告未对其涉案房屋所占土地进行补偿认定事实不清，适用法律错误的意见没有事实和法律依据，本院不予采信。
关于原告主张被告适用《国有土地上房屋征收与补偿条例》的有关规定对农村宅基地及房屋进行补偿适用法律错误的问题。根据《中共中央纪委办公厅、监察部办公厅关于加强监督检查进一步规范征地拆迁行为的通知》（中纪办发[2011]8号）第二条的有关规定，在《中华人民共和国土地管理法》等法律法规作出修订之前，集体土地上房屋拆迁，要参照《国有土地上房屋征收与补偿条例》的精神执行。故被告适用《国有土地上房屋征收与补偿条例》作出涉案房屋征收补偿决定并无不当。
关于原告主张被告作出的27号征收补偿决定未给予其补偿方式选择权的问题。因原告涉案房屋不具有合法用地手续，根据《海口市房屋征收补偿安置暂行办法》的有关规定，其不符合选择产权调换，购买安置房的条件，故被告在27号征收补偿决定中给予其涉案房屋货币补偿并无不当。
综上，原告的主张没有事实和法律依据，本院不予支持。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，判决如下：
驳回原告吴旺的诉讼请求。
案件受理费50元，由原告吴旺负担。
如不服本判决，可在本判决书送达之日起十五日内，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。
审判长潘娜
审判员符汉平
审判员何芳
书记员麦海燕
附相关法律法规、司法解释条文：
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