海南省高级人民法院
p t ; ” > 行 政 赔 偿 判 决 书
（2017）琼行赔终78号
上诉人（原审原告）罗怀珠，女，1966年1月24日出生，汉族，住海南省三亚市。
委托代理人陈太真，广东三正律师事务所律师。
委托代理人许云敬，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，住所地海南省三亚市新风路257号。
法定代表人吴岩峻，市长。
委托代理人郑大平，三亚市法制办公室工作人员。
上诉人罗怀珠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（2017）琼02行赔初37号行政赔偿判决，向本院提起上诉。本院依法组成合议庭，公开开庭审理了本案。上诉人罗怀珠的委托代理人陈太真，被上诉人三亚市政府的委托代理人郑大平到庭参加诉讼。因本案与本院同期受理的车燕珍等人分别诉三亚市政府房屋征收及行政赔偿41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42宗案件合并审理。本案现已审理终结。
罗怀珠以三亚市政府违法征收其三亚市吉阳区东岸村民委员会（以下简称东岸村委会）棚户区范围内房屋为由，提起本案诉讼，请求：三亚市政府赔偿其位于东岸村委会土地范围内的848.96平方米家庭住宅被征收的损失848.96万元（按每平方米1万元计）及拆除其房屋未能回收的建筑钢筋材料损失6万元。
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），且户籍也不在东岸村的外来人员的房屋，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罗怀珠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《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，明确了罗怀珠被征收房屋的规格、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。罗怀珠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。2015年11月7日，罗怀珠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848.96平方米（超出525平方米部分不予补偿）给予乙方生活困难补助费288750元（标准为550元/平方米）和搬迁奖励费131250元（标准为250元/平方米），合计420000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，罗怀珠领取了前述协议约定的全部款项。
2016年10月29日，吉阳区政府对罗怀珠被征收的房屋进行了拆除。2016年6月26日，罗怀珠以三亚市政府作出的185号征收决定违法为由，提起本案赔偿诉讼，请求判决三亚市政府赔偿其位于东岸村土地范围内的848.96平方米家庭住宅被征收的损失848.96万元（按每平方米l万元计，以司法评估为准）及拆除其房屋未能回收的建筑钢筋材料损失6万元。2017年6月27日，罗怀珠另外向原审法院提起行政诉讼，请求判决三亚市政府征收其位于东岸村土地范围内的家庭住宅之行政行为违法，并依法审查270号补偿安置方案的合法性。案件庭审时，罗怀珠明确：其被征收的家庭住宅面积为848.96平方米；其同意按每平方米1万元计算损失金额后，不再申请司法评估。原审法院经审理，于2017年9月19日对罗怀珠诉三亚市政府房屋征收行为违法一案作出判决，驳回了罗怀珠的诉讼请求。
原审另查明，罗怀珠的户籍不在东岸村，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罗怀珠被征收的涉案房屋进行清点、丈量和登记，并先后制作了《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。罗怀珠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，罗怀珠与征收实施单位吉阳区政府、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，罗怀珠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，罗怀珠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无异议的，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。三亚市政府征收罗怀珠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罗怀珠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270号补偿安置方案的合法性的诉讼请求。现罗怀珠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，罗怀珠申请调取东岸村棚户区改造项目的相关征收文件、自2000年以来东岸村的土地房屋登记和报建记录以及相关职能部门查处东岸村违建的行政记录材料等证据的申请理由不充分，依法不予准许。综上，罗怀珠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，判决驳回罗怀珠的赔偿请求。
上诉人罗怀珠上诉称，一、三亚市政府作出185号征收决定实体违法、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。2017年8月21日,本院作出(2017)琼行终762号行政判决,维持原审法院(2016)琼02行初339号行政判决,确认三亚市政府作出的185号征收决定违法。二、三亚市政府征收罗怀珠家庭住宅，未签订协议或作出决定，亦未予以补偿，侵犯公民财产权利。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缺失公共利益。四、罗怀珠在东岸村的房屋未经专业测量、确认面积及评估价值，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、房屋灭失赔偿的责任。五、原审法院在其合并审理44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，罗怀珠的公民住宅及财产权利应得到有效保护。综上，请求：1.撤销原审判决；2.支持罗怀珠的原审诉讼请求。
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。本院另查明，罗怀珠诉三亚市政府征收其房屋行政行为违法一案，在原审法院作出（2017）琼02行初148号行政判决驳回其诉讼请求后，其向本院提起上诉。2017年12月7日，本院作出（2017）琼行终1725号行政判决，驳回了罗怀珠的上诉。
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。本案系罗怀珠以三亚市政府为被告一并提起的行政赔偿之诉，但罗怀珠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1725号行政判决驳回诉讼请求。罗怀珠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，驳回罗怀珠的赔偿请求，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。罗怀珠的上诉请求不成立，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
审判员吴天月
审判员陈焱
审判员朱望锋
二○一七年十二月七日
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：
（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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