海南省高级人民法院
p t ; ” > 行 政 赔 偿 裁 定 书
（2017）琼行赔终79号
上诉人（原审原告）羊文中，男，1955年9月12日出生，汉族，住海南省东方市。
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。
上诉人羊文中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38号行政赔偿裁定，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。上诉人羊文中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。
羊文中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土地范围内的257.73平方米家庭住宅被征收的损失257.73万元（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，合计263.73万元。
原审查明，2015年9月30日，因实施东岸村棚户区改造项目需要，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》），决定征收该项目范围内国有土地上的所有房屋。征收范围为：东至海螺路，南至迎宾大道，西至凤凰路，北至荔枝沟路。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；征收主体为三亚市政府；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，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。该方案第四条第（五）项对外来人员房屋的补偿标准部分规定，征收无合法房屋产权（或等同手续），且户籍也不在东岸村委会的外来人员的房屋，按以下标准补偿：1.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；2.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；3.确定为违法建筑的房屋不予补偿。
2016年5月4日，三亚市吉阳区城市管理局（以下简称吉阳区城管局）发现羊文中未经规划部门批准，未取得建设工程规划许可证，在三亚市××区房屋。该房屋建至主体二层局部三层封顶，其中第一层、第二层为混合结构，占地面积120平方米，建筑面积240平方米；第三层为砖墙体铁皮顶结构，建筑面积60平方米。总建筑面积300平方米，遂检查现场，立案查处，并于2016年5月5日向羊文中发出《责令（限期）改正通知书》，认定羊文中建设上述房屋的行为违反了《中华人民共和国城乡规划法》第四十条及《海南省城乡规划条例》第三十七条的规定，根据《中华人民共和国城乡规划法》第六十四条、第六十八条及《海南省城乡规划条例》第七十三条的规定，责令羊文中于2016年5月6日前自行拆除上述房屋，逾期不拆除的，该局将依法强制拆除。因羊文中逾期未拆除上述房屋，2016年5月12日，吉阳区城管局作出三吉城管（二大队）执决字〔2016〕第355号《强制执行决定书》，根据《中华人民共和国城乡规划法》第六十四条、第六十八条及《中华人民共和国行政强制法》第四十四条之规定，决定于2016年5月17日对上述违法建筑实施强制拆除，并告知了不服该决定可申请行政复议或提起行政诉讼的期限和途径。同日，吉阳区城管局又作出《关于强制拆除违法建筑及搬离物品的公告》，通知羊文中及相关住户、用户于2016年5月16日24时前清理、搬运完毕该违法建筑内所有物品，并且人员撤离出该建筑。同时，要求羊文中自行拆除该建筑物墙体上的门窗、防盗门、空调等物品，以减少经济损失。2016年11月27日，吉阳区城管局对上述建筑进行了强制拆除。
原审另查明，2003年10月4日，羊文中向三亚市公安局申请将其户口从本省东方市板桥镇文质村迁入东岸村委会丹州五组，但三亚市公安局未予审批。
原审认为，首先，《国有土地上房屋征收与补偿条例》第二十四条第二款规定，市、县级人民政府作出房屋征收决定前，应当组织有关部门依法对征收范围内未经登记的建筑进行调查、认定和处理。对认定为合法建筑和未超过批准期限的临时建筑的，应当给予补偿；对认定为违法建筑和超过批准期限的临时建筑的，不予补偿。可见，违法建筑不属于行政征收的范围。其次，《中华人民共和国行政诉讼法》第二十六条第一款规定，公民、法人或者其他组织直接向人民法院提起诉讼的，作出行政行为的行政机关是被告。经查，认定涉案房屋为违法建筑，决定强制拆除该房屋并在对外发生法律效力的《责令（限期）改正通知书》、《强制执行决定书》及《关于强制拆除违法建筑及搬离物品的公告》等一系列执法文书上署名的行政机关均为吉阳区城管局，实际组织并实施强制拆除行为的行政主体亦是吉阳区城管局。羊文中对拆除涉案房屋的行政行为不服，根据上述法律规定，应当以吉阳区城管局为被告。最后，《最高人民法院关于行政诉讼证据若干问题的规定》第四条第一款规定，公民、法人或者其他组织向人民法院起诉时，应当提供其符合起诉条件的相应证据材料。本案中，羊文中以三亚市政府为被告提起诉讼，要求确认三亚市政府征收其房屋的行为违法，但现有证据不能证明三亚市政府征收并强制拆除了涉案房屋，因此，羊文中的起诉不符合法定条件。综上，涉案房屋不属于行政征收的范围，三亚市政府亦不是本案适格被告。对羊文中的起诉，依法应予驳回。依照《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》第三条第一款第（三）项之规定，裁定驳回羊文中的起诉。
上诉人羊文中上诉称，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、三亚市政府征收羊文中家庭住宅，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、羊文中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，羊文中的公民住宅及财产权利应得到有效保护。综上，原审裁定妨害羊文中的诉讼权利，请求：1.撤销原审裁定；2.裁定提审或指定海南省海口市中级人民法院审理本案。
被上诉人三亚市政府答辩称，原审裁定认定事实清楚，案件处理结果正确。
本院经审理查明的事实与原审裁定认定的事实一致。本院另查明，羊文中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149号行政裁定驳回其起诉后，其向本院提起上诉。2017年12月7日，本院作出（2017）琼行终1726号行政裁定，驳回了羊文中的上诉。
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。本案系羊文中以三亚市政府为被告一并提起的行政赔偿之诉，但羊文中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1726号行政裁定驳回起诉。羊文中提起本案行政赔偿亦不符合法定起诉条件，故原审法院依据《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》第三条第一款第（三）项之规定，裁定驳回羊文中的起诉，并无不当。综上，原审裁定认定事实清楚，适用法律正确，案件处理结果亦无不当。羊文中的上诉请求不成立，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，裁定如下：
驳回上诉，维持原裁定。
本裁定为终审裁定。
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：本裁定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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