海南省高级人民法院
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（2017）琼行终1743号
海南省高级人民法院
行政判决书
（2017）琼行终1743号
上诉人（原审原告）王少颜，女，1952年5月10日出生，汉族，住琼海市。
委托代理人陈杰川，琼海市恒信法律事务所法律工作者。
委托代理人冯锦玉，男，1952年3月14日出生，汉族，住琼海市。系王少颜的丈夫。
被上诉人（原审被告）琼海市人民政府，住所地琼海市嘉积镇兴海北路1号。
法定代表人符平，市长。
委托代理人何修颖，琼海市国土资源局工作人员。
委托代理人吴祝亮，海南宏顺律师事务所律师。
被上诉人（原审被告）琼海市博鳌镇人民政府，住所地琼海市博鳌镇。
法定代表人王维浩，镇长。
委托代理人谭振刚，琼海市博鳌镇人民政府工作人员。
委托代理人吴祝亮，海南宏顺律师事务所律师。
上诉人王少颜因其诉被上诉人琼海市人民政府（以下简称琼海市政府）、琼海市博鳌镇人民政府（以下简称博鳌镇政府）土地征收行政补偿一案，不服海南省第一中级人民法院（2017）琼96行初98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。
王少颜以琼海市政府于2015年征用其耕地4.593亩时截留安置补助费、地上附着物和青苗补偿费为由，提起本案诉讼，请求判决：1.琼海市政府、博鳌镇政府给付其安置补助费281587元；2.琼海市政府、博鳌镇政府给付其地上附着物和青苗补偿款15050元。
原审查明，根据海南省国土环境资源厅2013年11月1日下发的琼土环资函[2013]1923号《关于批复琼海市博鳌乐城规划区1号地块农用地转用和土地征收手续的函》、琼海市人民政府办公室2015年9月11日下发的海府办函[2013]43号《关于做好博鳌乐城国际医疗旅游先行区2号地块征收调查工作的通知》要求，琼海市政府组织进行了相关土地征收工作。其中征收王少颜所属琼海市博鳌镇指母村民委员会第七村民小组（以下简称七村）的土地面积共计167.23亩（1号地块征收25.9亩，2号地块征收132.61亩，迁坟安置地8.72亩），土地补偿费及安置补助费标准按照《海南省人民政府关于印发海南省征地统一年产值标准和海南省征地青苗及地上附着物补偿标准的通知》（琼府[2014]36号）和琼海市政府常务会议纪要（十四届43次[2015]1号）规定的标准执行，即108468元/亩（土地补偿费47160元，安置补助费61308元）。该167.23亩土地的征地补偿费计181439103.64元。2016年2月4日，博鳌镇政府分二笔将17193262.68元征地补偿费拨付给七村指定账户。2016年4月6日，博鳌镇政府将945840.96元征地补偿费拨付给七村指定账户。上述博鳌镇政府拨付土地补偿费共计181439103.64元。2015年9月25日，经博鳌镇政府组织人员对征收地块青苗进行调查，调查结果为王少颜在征地范围内种植槟榔10株，按每株单价304元计算，青苗补偿费为3040元；征收的王少颜其他承包土地共3.433亩，因该3.433亩土地上没有种植青苗及地上附着物，按照征地奖励政策，对没有种植青苗及地上附着物的空地按照15000元/亩给予奖励，计51495元；上述两项补偿共计54535元。2015年11月27日，该笔款项54535元已入账王少颜的账户，王少颜也在《博鳌乐城先行区项目1、2号地征地青苗及地上附着物补偿表》上签字确认。2016年4月10日，七村村民会议通过征地补偿费分配方案，王少颜不同意该分配方案，未在分配方案上签字，也未领取分配方案确定分配给其的征地补偿费。王少颜称按该分配方案其应分配的征地补偿费为250000元。王少颜认为征收其耕地为4.593亩，按安置补助费每亩61308元，计安置补助费为281587元；另有尚未支付青苗补偿费15050元。王少颜以琼海市政府、博鳌镇政府拒绝支付上述补偿费为由，提起本案诉讼。
原审另查明，琼海市政府于2005年8月31日颁发的琼海市农地承包权博鳌镇第1114543号《农村土地承包经营权证》记载王少颜承包地总面积为3.083亩。琼海市农林局于2010年7月13日颁发给王少颜的《林权证》中记载的大岭地面积为0.46亩。
原审再查明，《琼海市博鳌乐城规划区1号地块征收土地补偿安置方案》第四条内容为：”四、被征收土地涉及的农业人口安置途径。该项目被征收土地涉及的集体经济组织，需安置的农业人口以征地调查核实人数为准。安置途径以货币补偿方式为主，对需要安置的农业人口由博鳌镇政府将安置补助费拨付给被征地单位；征收农村家庭承包经营土地的，按照《海南省被征地农民参加社会养老保险办法》《琼海市被征地农民社会养老保障工作实施方案》的规定，对16周岁以上的在册农业人口，采取政府缴费补贴方式办理养老保险，参加养老保险的对象由各村民小组统计、公示后，报博鳌镇政府审核、再公示，经公示无异议后，由博鳌镇政府按操作规程将参保人员名单报市人力资源和社会保障局办理养老保险；征收土地涉及拆迁农户住房的，建设安置区进行安置。”
原审认为，本案争议的焦点问题是王少颜诉请琼海市政府、博鳌镇政府支付安置补助费281587元和青苗补偿费15050元是否有事实和法律依据。本案中，王少颜对于琼海市政府、博鳌镇政府的征地行为及征地补偿标准没有异议。根据本案已经查明的事实，琼海市政府、博鳌镇政府先后征收王少颜所属村民小组七村集体土地167.23亩，征地补偿费包括土地补偿费和安置补助费，共计181439103.64元已全额拨付给七村。涉及王少颜承包使用的土地及地上青苗、附着物的补偿包括空地奖励费54535元，王少颜也已经领取。王少颜主张其被征地面积为4.593亩，并非琼海市政府、博鳌镇政府实地测量作为补偿依据的空地3.433亩、槟榔10株所占地面积。但根据王少颜提交的《农村土地承包经营权证》和《林权证》，两证记载的面积相加为3.543亩（3.083亩+0.46亩），因另有10株槟榔占地面积不计入空地，琼海市政府、博鳌镇政府实地测量并给予补偿的土地亩数与王少颜持有的《农村土地承包经营权证》和《林权证》记载的土地亩数基本相符，王少颜主张其被征土地面积为4.593亩缺乏充分的证据证明，与已查明的事实不符，原审法院不能支持。王少颜已经领取被征土地的青苗和地上附着物补偿费及空地奖励费54535元，王少颜主张尚有15050元青苗补偿费未领取，没有证据证明，原审法院不予支持。关于安置补助费，根据《中华人民共国土地管理法实施条例》第二十六条的规定，土地补偿费及安置补助费应支付给土地被征收的农村集体经济组织，在本案中即为七村。而且在《琼海市博鳌乐城规划区1号地块征收土地补偿安置方案》中也明确，安置途径以货币补偿方式为主，对需要安置的农业人口由博鳌镇政府将安置补助费拨付给被征地单位。因此，王少颜请求琼海市政府、博鳌镇政府支付安置补助费281587元给其个人，缺乏法律依据，原审法院不予支持。此外，对于王少颜因不同意在七村征地补偿费分配方案上签字，一直未领取相关分配款项，属于王少颜与七村之间的民事纠纷，王少颜可另行主张权利。综上，琼海市政府、博鳌镇政府已向王少颜所在村民小组全额拨付征地补偿费，并向王少颜支付地上青苗和附着物补偿费，王少颜诉称琼海市政府、博鳌镇政府截留安置补助费和青苗补偿费，并请求支付安置补助费281587元和青苗补偿费15050元，没有事实和法律根据，理由不成立，原审法院不予支持。依照《中华人民共和国行政诉讼法》第六十九条之规定，判决驳回王少颜的诉讼请求。案件受理费50元，由王少颜负担。
王少颜上诉称，一、原审部分事实认定错误。王少颜被征土地面积不是原审认定的3.543亩。在规划区1号地块和先行区2号地块范围内，王少颜被征土地的测量面积为3.433亩，地上种植有10株槟榔；在迁坟安置地范围内，王少颜被征林地面积0.46亩，地上种植有桉树92株；另外，王少颜还在七村外包的罗北片区16亩旱地（地上种植有槟榔1523株）中有被征土地0.473亩和槟榔44株。王少颜被征土地共计4.366亩（3.433亩+0.46亩+0.473亩），但博鳌镇政府未支付0.46亩林地中的92株桉树的青苗补偿费3508元（每株49元）、七村未支付0.473亩罗北田中的44株槟榔的青苗补偿费12100元（每株276元），而琼海市政府、博鳌镇政府也未支付上述被征土地的安置补助费281587元。二、原审判决适用法律错误。《中华人民共和国农村土地承包法》第十六条第（二）项规定，承包地被依法征用、占用的，承包方有权依法获得相应的补偿。《海南经济特区土地管理条例》第三十条第二款规定，征地补偿费的分配使用和管理，依照省政府有关规定执行。《海南省〈实施中华人民共和国农村土地承包法〉办法》第三十一条第一款规定，农村集体经济组织因非农业建设经依法批准占用本集体经济组织成员承包地的，没有土地可以调整的，应当按照国家征用农村集体土地的安置补偿标准给予被占地承包方补偿。《国土资源部关于进一步做好征地管理工作的通知》第三条要求，按照征地补偿主要用于被征地农民的原则合理分配征地补偿费，还要求应支付给农民的要直接支付给农民个人。以上法律法规、政策规定征地补偿的对象是失地的农民，安置费应直接支付给农民。琼海市政府、博鳌镇政府把土地补偿费、安置补偿费全部支付给村民小组，与法律相悖。三、原审判决关于涉案纠纷定性错误。原审认定七村不向王少颜支付征地补偿费属民事纠纷，不能成立。《中华人民共和国物权法》第四十二条第四款规定，任何单位和个人不得贪污、挪用、私分、截留、拖欠征收补偿费等费用。《海南经济特区土地管理条例》第三十条第二款规定，征地补偿费应当自征地补偿安置方案批准之日起三个月内全额支付，不得以任何理由延期支付。依据上述规定，不能用不签名领取补偿费用来掩盖不支付征地补偿款的事实。另外，土地征收主体是政府，安置补助费应由政府直接拨给被征地农民。原审将行政诉讼认定为民事案件，与法律相悖。综上，原审判决认定事实和适用法律错误，请求撤销原审判决，支持王少颜的原审诉讼请求。
琼海市政府、博鳌镇政府共同答辩称，一、原审判决认定事实清楚，证据充分，适用法律正确。琼海市政府、博鳌镇政府共征收七村土地167.23亩，并将包括土地补偿费、安置补助费在内的征收补偿费18139103.64元依法全额拨付给访该被征地单位。而王少颜承包使用的空地共计3.433亩，种植有10株槟榔，其按规定标准共应得到青苗和附着物补偿54535元，王少颜已领取该补偿款。二、王少颜的上诉理由不成立。（一）关于王少颜主张原审判决遗漏罗北田0.473亩土地的问题。承包手册上记载的面积只能反映土地承包开始时的情况，无法体现承包后土地流转的情况，因此承包手册记载的承包人与实际使用人不一定相符。本案中，王少颜签字确认的青苗及地上附着物补偿表载明，其现在实际使用的土地仅有空地3.433亩，种植有槟榔10株。征地调查中，并无王少颜主张的罗北田0.473亩土地，其在原审也未提供证据证明承包有该地块，故王少颜关于原审判决遗漏查明罗北田0.473亩土地的意见不属实。（二）关于王少颜主张原审判决适用法律错误的问题。王少颜援引《中华人民共和国土地管理法实施条例》第二十六条、《中华人民共和国土地管理法》第四十七条、《中华人民共和国农村土地承包法》第十六条，拟证明原审判决适用法律错误。但从上述法律规定的内容看，可证明原审判决适用法律正确。综上，原审判决认定事实清楚，适用法律正确，王少颜的上诉不成立，请求驳回上诉，维持原判。
本院经审理查明的事实与原审判决认定的基本事实一致。但原审认定的七村被征收土地的征收补偿费共计181439103.64元的事实错误，应认定为18139103.64元。本院另查明：一、二审询问时，王少颜确认在其所持《林权证》登记的0.46亩大岭林地中，除其种植的现存10余棵桉树用地外，其余大部分土地在征收时被案外人用于种植菠萝，并已被作为迁坟用地。博鳌镇政府认可该地块被征收为迁坟用地，并称现存桉树用地未被征收，其他被征收土地的青苗和附着物补偿费已支付给土地实际使用人。二、1998年颁发、承包合同编号为04的《农村集体土地承包经营权证书》记载，王少颜在七村承包有地名为罗北田的0.473亩基本农田。二审询问时，王少颜确认包括该地块在内的共计16亩土地早在征地前已被村集体发包给案外人使用，其领取过两次土地收益金。七村在《现将这次本队征地款公布于下》的文件中，明确了包括上述16亩土地青苗补偿款462800元在内的征地款项的分配方案。
本院认为，《中华人民共和国土地管理法实施条例》第二十六条第一款规定：”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”；该条第二款规定：”征用土地的安置补助费必须专款专用，不得挪作他用。需要安置的人员由农村集体经济组织安置的，安置补助费支付给农村集体经济组织，由农村集体经济组织管理和使用；由其他单位安置的，安置补助费支付给安置单位；不需要统一安置的，安置补助费发放给被安置人员个人或者征得被安置人员同意后用于支付被安置人员的保险费用”。本案中，根据王少颜签字确认的土地面积和青苗数量，琼海市政府、博鳌镇政府已按标准向王少颜支付了青苗和附着物补偿费包括空地奖励费54535元。另外，七村被征收土地包括王少颜的土地在内共计167.23亩，琼海市政府、博鳌镇政府已将包括土地补偿费和安置补助费在内的征地补偿费18139103.64元全额拨付给该村。依照上述规定，琼海市政府、博鳌镇政府就涉案征地所作的安置补偿行为并无违法之处，王少颜关于征收单位应直接向其支付安置补助费的主张不能成立。
本案的主要争议焦点是王少颜关于其承包的0.46亩林地和0.473亩罗北田土地的补偿请求是否成立的问题。一、两地块的青苗和附着物补偿。关于0.46亩林地的青苗和附着物补偿。根据二审查明事实，该地块中的大部分土地在征地前已被案外人用于种植菠萝，对此部分土地，因土地实际使用人并非王少颜，其要求琼海市政府、博鳌镇政府予以青苗和附着物补偿于法无据，但若王少颜认为案外人侵犯其合法权益，可通过协商或民事诉讼等途径另行解决。对该林地中的现存桉树用地，因桉树尚未被砍伐，不能确定是否为被征收土地，王少颜目前主张青苗补偿缺乏事实根据，但若该地块能够被确定为被征收土地，王少颜可在征收单位实际使用土地时再行主张青苗补偿费用。关于0.473亩罗北田的青苗和附着物补偿。该地的青苗补偿费已支付给七村，且王少颜二审亦确认该地已由七村于征地前以村民小组的名义发包给案外人使用，现王少颜要求该地块的青苗和附着物补偿的实质是关于青苗补偿费用的分配问题，该争议与涉案征收单位无关，其应向七村提出相关主张。二、两地块的土地补偿费和安置补助费。琼海市政府、博鳌镇政府已依法将包括王少颜主张权利的地块在内的全部被征收土地的土地补偿费和安置补助费全额支付给了七村，七村亦经民主程序确定了分配方案，王少颜如对分配方案或其应得份额有异议，亦可通过协商或民事诉讼等途径向七村提出相关主张，其现诉请琼海市政府、博鳌镇政府向其支付上述费用，缺乏事实根据和法律依据。
综上所述，琼海市政府、博鳌镇政府就征收涉案土地所作的补偿行为并无不当；原审判决认定基本事实清楚，适用法律和案件处理结果正确，依法应予维持；王少颜的上诉请求和理由缺乏事实根据和法律依据，依法应予驳回。依照《中华人民共和国行政诉讼法》第八十九条第一款第（一）项之规定，判决如下：
驳回上诉，维持原判。
二审案件受理费50元，由上诉人王少颜负担。
本判决为终审判决。
审判长黄胜敏
审判员郑怀全
审判员麻红丽
二○一七年十二月六日
书记员王婉
附：本判决适用的相关法律依据
《中华人民共和国行政诉讼法》
第八十九条人民法院审理上诉案件，按照下列情形，分别处理：
（一）原判决、裁定认定事实清楚，适用法律、法规正确的，判决或者裁定驳回上诉，维持原判决、裁定；
（二）原判决、裁定认定事实错误或者适用法律、法规错误的，依法改判、撤销或者变更；
（三）原判决认定基本事实不清、证据不足的，发回原审人民法院重审，或者查清事实后改判；
（四）原判决遗漏当事人或者违法缺席判决等严重违反法定程序的，裁定撤销原判决，发回原审人民法院重审。
原审人民法院对发回重审的案件作出判决后，当事人提起上诉的，第二审人民法院不得再次发回重审。
人民法院审理上诉案件，需要改变原审判决的，应当同时对被诉行政行为作出判决。
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