海南省高级人民法院
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(2017)琼行赔终171号
上诉人（原审原告）符树永，男，1958年10月28日出生，汉族，住海南省万宁市。
委托代理人陈太真，广东三正律师事务所律师。
被上诉人（原审被告）三亚市人民政府，住所地三亚市新风路257号。
法定代表人吴岩峻，市长。
委托代理人周丽，三亚市法制办公室工作人员。
上诉人符树永因其诉被上诉人三亚市人民政府（以下简称三亚市政府）行政赔偿一案，不服海南省三亚市中级人民法院（2016）琼02行赔初71号行政赔偿判决，向本院提起上诉。本院依法组成合议庭，对本案进行了审理。因本案与本院同期受理的赖金水等人分别诉三亚市政府房屋征收及行政赔偿50宗案件的诉讼请求、事实与理由相类同，本院在征得各方当事人同意后将该51宗案件合并审理。现已审理终结。
原审查明，2015年9月30日，三亚市政府作出三府〔2015〕185号《三亚市人民政府关于东岸村棚户区改造项目房屋征收决定》（以下简称185号征收决定），决定征收东岸村棚户区改造项目范围内（东至海螺路，南至迎宾大道，西至凤凰路，北至荔枝沟路）的国有土地上的所有房屋，改造项目总占地面积约2940亩，需征收房屋面积约130万平方米；上述房屋被依法征收的，国有土地使用权同时收回；房屋征收实施单位为三亚市吉阳区人民政府（以下简称吉阳区政府）；征收时间为2015年9月30日至2016年3月30日；房屋征收部门应按照该决定及三府办〔2015〕270号《三亚市人民政府办公室关于印发三亚市东岸村棚户区改造项目征收补偿安置方案的通知》（以下简称270号补偿安置方案）对被征收人给予公平补偿；房屋征收部门与被征收人在征收补偿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三亚市政府按照征收补偿方案和有关规定作出补偿决定；被征收人在补偿决定规定的期限内仍不搬迁的，将依法申请人民法院强制执行。另外，该征收决定还告知被征收人如不服该决定，可以在决定发布之日起3个月内向原审法院提起行政诉讼。同日，三亚市政府办公室向吉阳区政府及市各相关单位印发了270号补偿安置方案。该方案规定，征收无合法房屋产权（或等同手续），且户籍也不在三亚市××区民委员会（以下简称东岸村委会）的外来人员的房屋，按以下标准补偿：主动配合登记丈量，积极进行搬迁工作，被拆房屋（包括框架、混合、砖木结构房屋）按每平方米550元标准给予被拆迁户生活困难补助；在规定时间完成搬迁的被拆迁户，再给予每平方米250元的搬迁奖励费；确定为违法建筑的房屋不予补偿。此后，吉阳区政府指派三亚市吉阳区住房和城乡建设局（以下简称吉阳区住建局）等相关部门的工作人员对符树永位于东岸村棚户区改造项目用地征收范围内的涉案房屋进行了清点、丈量和登记，并先后制作《附着物补偿统计表》、《国家建设征地拆迁补偿统计表》和《国家建设征地拆迁补偿表》等补偿统计资料，明确了符树永被征收房屋的规格、面积及政府应支付的生活困难补助费和搬迁奖励费的金额。符树永对前述补偿统计资料所登记的被征收房屋规格、面积及补助单价、金额均签名予以认可，并于2016年4月29日出具《承诺书》，承诺积极配合东岸村棚户区拆迁改造工作，并按有关政策及安置方案的规定和要求进行丈量登记、签订协议及搬迁，如违背承诺愿意承担相应后果。同日，符树永作为乙方与甲方吉阳区政府下属吉阳区住建局签订了《房屋拆迁补助协议书》，约定：因乙方未能提供被拆房屋的合法权属证明等相关材料，故其房屋可依法认定为违法建筑，依法拆除可不予补偿，但鉴于乙方生活实际困难，故甲方同意根据《东岸村棚户区改造项目拆迁补偿安置方案》的有关条款，给予乙方适当的生活困难补助，即按乙方被拆房屋面积414.56平方米给予乙方生活困难补助费228008元（标准为550元/平方米）和搬迁奖励费103640元（标准为250元/平方米），合计331648元；乙方同意不再对被拆房屋及附着物、青苗提出补偿要求；乙方领取房屋搬迁生活困难补助款后，其房屋权属转移归甲方；乙方应于领取补助款之日起七日内腾空房屋，交由甲方拆除，如乙方无故逾期不搬的，甲方可依法予以强制拆除，后果由乙方负责。之后，符树永领取了前述协议约定的全部款项。
2016年8月10日，吉阳区政府对符树永被征收的房屋进行了拆除。2016年11月8日，符树永以三亚市政府征收其房屋的行政行为违法为由，提起行政诉讼，请求法院判决三亚市政府征收其位于东岸村委会土地范围内的家庭住宅的行政行为违法，并依法审查三亚市政府作出的185号征收决定和270号补偿安置方案的合法性。同日，符树永另外提起本案赔偿诉讼，请求判令三亚市政府赔偿符树永位于东岸村委会土地范围内的414.56平方米家庭住宅被征收的损失8291200元（暂按2万元/平方米计，最终由法院按同地段当前新建商品房的市场价值评估结果为准，包括拆迁房屋造成的符树永建筑材料未能回收的损失6万元）及符树永在取得政府赔偿前的租房费用（自2017年1月1日起按每月5000元计）；依法审查三亚市政府作出的185号征收决定和270号补偿安置方案的合法性。在本案诉讼期间，经释明，符树永当庭放弃了第二项诉讼请求，即”依法审查三亚市政府作出的185号征收决定和270号补偿安置方案的合法性”。此后，原审法院经审理，于2017年3月6日对符树永诉三亚市政府房屋征收行为违法一案作出判决，驳回了符树永请求判决确认三亚市政府征收其涉案房屋的行政行为违法及依法审查三亚市政府作出的185号征收决定和270号补偿安置方案的合法性的诉讼请求。
原审另查明，符树永的户籍不在东岸村委会，其被征收的涉案房屋未办理合法的产权登记。
原审认为，三亚市政府在征收东岸村棚户区改造项目用地的过程中，已将185号征收决定和270号补偿安置方案进行公示，公布了东岸村棚户区改造项目的征收补偿标准。其所确定的征收实施单位吉阳区政府也指派吉阳区住建局等相关部门的工作人员对符树永被征收的涉案房屋进行清点、丈量和登记，并先后制作了《附着物补偿统计表》《国家建设征地拆迁补偿统计表》和《国家建设征地拆迁补偿表》等补偿统计资料。符树永对征收人员在前述补偿统计资料中所登记的涉案房屋的规格、面积及政府应支付的生活困难补助费和搬迁奖励费的计算单价和金额均予以认可。随后，符树永与征收实施单位吉阳区政府下属吉阳区住建局签订《房屋拆迁补助协议书》并领取了全部补助款。双方协议约定，符树永依据协议领取房屋搬迁生活困难补助款后，不再对被拆房屋及附着物、青苗提出补偿要求，其房屋权属转移归吉阳区政府，由吉阳区政府拆除。根据前述事实可以确定，符树永在三亚市政府征收过程中，对其房屋的征收补偿标准是清楚且同意的，其随后领取补助款的行为也进一步印证其对政府的征收行为是没有异议的。三亚市政府征收符树永涉案房屋的行政行为认定事实清楚，程序没有违反《海南经济特区土地管理条例》第二十八条的相关规定。据此原审法院已另案判决驳回了符树永的确认三亚市政府征收其涉案房屋的行政行为违法及依法审查三亚市政府作出的185号征收决定和270号补偿安置方案的合法性的诉讼请求。现符树永在双方协议已经履行完毕，其对涉案房屋已丧失权利之后，又反悔主张三亚市政府征收行为违法，要求三亚市政府赔偿其房屋被征收的损失，没有充分的事实根据和法律依据，依法不予支持。相应地，符树永申请调取东岸村棚户区改造项目的相关征收批准文件及东岸村历年土地房屋登记、报建记录材料等证据，并委托评估机构对其涉案房屋及周边三公里范围内的商品房的市场价格进行评估的申请理由不充分，依法不予准许。综上，符树永的赔偿请求依据不足，依法应予驳回。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）项及《最高人民法院关于审理行政赔偿案件若干问题的规定》第三十三条之规定，判决：驳回符树永的赔偿请求。
上诉人符树永上诉称，一、三亚市政府作出185号征收决定程序违法，且逾越职权、错误认定所涉土地性质、未向被征收人告知权利及救济途径，该决定依法应当撤销或者确认违法。原审法院于2016年5月9日受理撤销该决定之诉，近一年未作判决。二、三亚市政府征收符树永家庭住宅，未签订任何协议或作出决定，亦未予以任何补偿，严重侵犯公民财产权利和破坏政府信用。三、三亚市政府征收东岸村2940亩土地及两千多栋家庭住宅的行为严重缺失公共利益。四、符树永在东岸村的房屋经测量及确认面积，该房屋诉讼前即处于完全灭失状态，系三亚市政府强制征收且强制拆除所造成。现有证据足以确认该房屋属于被征收范围，三亚市政府对此亦应承担房屋合法性认定、房屋灭失赔偿的一切责任。五、原审法院在其合并审理55宗案件的裁判中，但凡签下《房屋拆迁补助协议》并收到生活补助款的，均认定所涉房屋属于被征收范围，且政府征收拆除房屋的行为合法，反之，抗拒签订《房屋拆迁补助协议》的，则认定涉案房屋不属于被征收对象，三亚市政府亦不是适格的诉讼对象。上述认定错误在于：（一）东岸村范围内的房屋均在事先圈定的棚改区范围之内，不存在属不属于征收范围的区别。三亚市政府在征收、拆除房屋的过程中，自始至终未对任何一栋房屋作出合法性认定。（二）征收决定的作出及补偿安置方案的适用均为三亚市政府的行政决策，但这两项行政行为均无法改变征收范围为集体土地的事实。三亚市政府未依土地征用审批权限作出的征收行为自始违法。（三）司法裁断的意义在于约束行政权力依法有效运行，而不是对行政机关的行为进行辩解与保护。本案中，符树永寻求的是公民住宅及财产权利应得到政府的有效保护而不是肆意破坏。综上，请求：1.撤销原审判决；2.支持符树永的原审诉讼请求。
被上诉人三亚市政府答辩称，原审判决认定事实清楚，案件处理结果正确。
本院经审理查明的事实与原审判决认定的事实一致。
本院认为，依据《中华人民共和国国家赔偿法》第二、三、四条的规定，受害人申请行政赔偿必须以所涉行政行为被确认违法及其合法权益受到损害为前提。本案系符树永以三亚市政府为被告一并提起的行政赔偿之诉，但符树永提起的确认本案行政赔偿所涉行政行为违法的诉讼，已被本院作出的（2017）琼行终1197号行政判决驳回诉讼请求。符树永提起行政赔偿所涉行政行为并未被确认违法，其提起本案行政赔偿没有事实根据，故原审法院依据《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）项及《最高人民法院关于审理行政赔偿案件若干问题的规定》第三十三条之规定，驳回符树永的赔偿请求，并无不当。综上，原审判决认定事实清楚，适用法律正确，案件处理结果亦无不当。符树永的上诉请求不成立，本院不予支持。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，判决如下：
驳回上诉，维持原判决。
本判决为终审判决。
审判长麻红丽
审判员郑怀全
审判员朱望锋
审判员黄胜敏
审判员陈焱
二○一七年十一月八日
书记员王洪玉
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：
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caseinfo=JSON.stringify({\"法院ID\":\"3139\",\"案件基本情况段原文\":\"\",\"附加原文\":\"\",\"审判程序\":\"一审\",\"案号\":\"（2017）陕0726民初857号\",\"不公开理由\":\"\",\"法院地市\":\"汉中市\",\"法院省份\":\"陕西\",\"文本首部段落原文\":\"\",\"法院区域\":\"\",\"文书ID\":\"16847f17-20de-472d-9b06-a85a0112ef98\",\"案件名称\":\"郭宝富与张文义务帮工人受害责任纠纷一审民事判决书\",\"法院名称\":\"宁强县人民法院\",\"裁判要旨段原文\":\"\",\"法院区县\":\"宁强县\",\"补正文书\":\"2\",\"DocContent\":\"\",\"文书全文类型\":\"1\",\"诉讼记录段原文\":\"原告郭宝富诉被告张文义务帮工人受害责任纠纷一案，本院受理后，依法由审判员宋德志适用简易程序公开开庭进行了审理，原告郭宝富及其委托代理人邓义民、被告张文及其委托代理人付建平均到庭参加了诉讼，本案现已审理终结\",\"判决结果段原文\":\"\",\"文本尾部原文\":\"\",\"上传日期\":\"\\\/Date(1514649600000)\\\/\",\"案件类型\":\"2\",\"诉讼参与人信息部分原文\":\"\",\"文书类型\":null,\"裁判日期\":null,\"结案方式\":null,\"效力层级\":null});$(document).attr(\"title\",\"郭宝富与张文义务帮工人受害责任纠纷一审民事判决书\");$(\"#tdSource\").html(\"郭宝富与张文义务帮工人受害责任纠纷一审民事判决书
（2017）陕0726民初857号\");$(\"#hidDocID\").val(\"16847f17-20de-472d-9b06-a85a0112ef98\");$(\"#hidCaseName\").val(\"郭宝富与张文义务帮工人受害责任纠纷一审民事判决书\");$(\"#hidCaseNumber\").val(\"（2017）陕0726民初857号\");$(\"#hidCaseInfo\").val(caseinfo);$(\"#hidCourt\").val(\"宁强县人民法院\");$(\"#hidCaseType\").val(\"2\");$(\"#HidCourtID\").val(\"3139\");$(\"#hidRequireLogin\").val(\"0\");});$(function(){var
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[{法规名称:\'《中华人民共和国侵权责任法》\',Items:[{法条名称:\'第六条第一款\',法条内容:\' 第六条
行为人因过错侵害他人民事权益，应当承担侵权责任。
根据法律规定推定行为人有过错，行为人不能证明自己没有过错的，应当承担侵权责任。
\'},{法条名称:\'第十五条第一款\',法条内容:\' 第十五条
承担侵权责任的方式主要有：
（一）停止侵害；
（二）排除妨碍；
（三）消除危险；
（四）返还财产；
（五）恢复原状；
（六）赔偿损失；
（七）赔礼道歉；
（八）消除影响、恢复名誉。
以上承担侵权责任的方式，可以单独适用，也可以合并适用。
\'},{法条名称:\'第十六条\',法条内容:\' 第十六条
侵害他人造成人身损害的，应当赔偿医疗费、护理费、交通费等为治疗和康复支出的合理费用，以及因误工减少的收入。造成残疾的，还应当赔偿残疾生活辅助具费和残疾赔偿金。造成死亡的，还应当赔偿丧葬费和死亡赔偿金。
\'},{法条名称:\'第二十六条\',法条内容:\'
第二十六条 被侵权人对损害的发生也有过错的，可以减轻侵权人的责任。
\'},{法条名称:\'第三十五条\',法条内容:\' 第三十五条
个人之间形成劳务关系，提供劳务一方因劳务造成他人损害的，由接受劳务一方承担侵权责任。提供劳务一方因劳务自己受到损害的，根据双方各自的过错承担相应的责任。
\'}]},{法规名称:\'《最高人民法院关于审理人身损害赔偿案件适用法律若干问题的解释》\',Items:[{法条名称:\'第十七条第一款\',法条内容:\'
第十七条
受害人遭受人身损害，因就医治疗支出的各项费用以及因误工减少的收入，包括医疗费、误工费、护理费、交通费、住宿费、住院伙食补助费、必要的营养费，赔偿义务人应当予以赔偿。
受害人因伤致残的，其因增加生活上需要所支出的必要费用以及因丧失劳动能力导致的收入损失，包括残疾赔偿金、残疾辅助器具费、被扶养人生活费，以及因康复护理、继续治疗实际发生的必要的康复费、护理费、后续治疗费，赔偿义务人也应当予以赔偿。
受害人死亡的，赔偿义务人除应当根据抢救治疗情况赔偿本条第一款规定的相关费用外，还应当赔偿丧葬费、被扶养人生活费、死亡补偿费以及受害人亲属办理丧葬事宜支出的交通费、住宿费和误工损失等其他合理费用。
\'},{法条名称:\'第十九条第一款\',法条内容:\'
第十九条
医疗费根据医疗机构出具的医药费、住院费等收款凭证，结合病历和诊断证明等相关证据确定。赔偿义务人对治疗的必要性和合理性有异议的，应当承担相应的举证责任。
医疗费的赔偿数额，按照一审法庭辩论终结前实际发生的数额确定。器官功能恢复训练所必要的康复费、适当的整容费以及其他后续治疗费，赔偿权利人可以待实际发生后另行起诉。但根据医疗证明或者鉴定结论确定必然发生的费用，可以与已经发生的医疗费一并予以赔偿。
\'},{法条名称:\'第二十条第一款\',法条内容:\'
第二十条 误工费根据受害人的误工时间和收入状况确定。
误工时间根据受害人接受治疗的医疗机构出具的证明确定。受害人因伤致残持续误工的，误工时间可以计算至定残日前一天。
受害人有固定收入的，误工费按照实际减少的收入计算。受害人无固定收入的，按照其最近三年的平均收入计算；受害人不能举证证明其最近三年的平均收入状况的，可以参照受诉法院所在地相同或者相近行业上一年度职工的平均工资计算。
\'},{法条名称:\'第二十一条第一款\',法条内容:\'
第二十一条 护理费根据护理人员的收入状况和护理人数、护理期限确定。
护理人员有收入的，参照误工费的规定计算；护理人员没有收入或者雇佣护工的，参照当地护工从事同等级别护理的劳务报酬标准计算。护理人员原则上为一人，但医疗机构或者鉴定机构有明确意见的，可以参照确定护理人员人数。
护理期限应计算至受害人恢复生活自理能力时止。受害人因残疾不能恢复生活自理能力的，可以根据其年龄、健康状况等因素确定合理的护理期限，但最长不超过二十年。
受害人定残后的护理，应当根据其护理依赖程度并结合配制残疾辅助器具的情况确定护理级别。
\'},{法条名称:\'第二十二条\',法条内容:\'
第二十二条
交通费根据受害人及其必要的陪护人员因就医或者转院治疗实际发生的费用计算。交通费应当以正式票据为凭；有关凭据应当与就医地点、时间、人数、次数相符合。
\'},{法条名称:\'第二十三条第一款\',法条内容:\'
第二十三条 住院伙食补助费可以参照当地国家机关一般工作人员的出差伙食补助标准予以确定。
受害人确有必要到外地治疗，因客观原因不能住院，受害人本人及其陪护人员实际发生的住宿费和伙食费，其合理部分应予赔偿。
\'},{法条名称:\'第二十四条\',法条内容:\'
第二十四条 营养费根据受害人伤残情况参照医疗机构的意见确定。
\'},{法条名称:\'第二十五条第一款\',法条内容:\' 第二十五条
残疾赔偿金根据受害人丧失劳动能力程度或者伤残等级，按照受诉法院所在地上一年度城镇居民人均可支配收入或者农村居民人均纯收入标准，自定残之日起按二十年计算。但六十周岁以上的，年龄每增加一岁减少一年；七十五周岁以上的，按五年计算。
受害人因伤致残但实际收入没有减少，或者伤残等级较轻但造成职业妨害严重影响其劳动就业的，可以对残疾赔偿金作相应调整。
\'}]},{法规名称:\'《最高人民法院关于确定民事侵权精神损害赔偿责任若干问题的解释》\',Items:[{法条名称:\'第九条\',法条内容:\'
第九条 精神损害抚慰金包括以下方式：
（一）致人残疾的，为残疾赔偿金；
（二）致人死亡的，为死亡赔偿金；
（三）其他损害情形的精神抚慰金。
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