海南省高级人民法院
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(2017)琼行赔终168号
上诉人（原审原告）李小霞，女，1974年9月28日出生，汉族，住海南省澄迈县。
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。
上诉人李小霞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67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李小霞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，明确了李小霞被征收房屋的规格、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。李小霞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12日，李小霞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320.43平方米给予乙方生活困难补助费176236.50元（标准为550元/平方米）和搬迁奖励费80107.50元（标准为250元/平方米），合计256344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，李小霞领取了前述协议约定的全部款项。
2016年8月2日，吉阳区政府对李小霞被征收的房屋进行了拆除。2016年10月25日，李小霞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。2016年10月26日，李小霞另外提起本案赔偿诉讼，请求判令三亚市政府赔偿李小霞位于东岸村委会土地范围内的320.43平方米家庭住宅被征收的损失6408600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李小霞建筑材料未能回收的损失6万元）及李小霞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，李小霞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日对李小霞诉三亚市政府房屋征收行为违法一案作出判决，驳回了李小霞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，李小霞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李小霞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。李小霞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，李小霞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，李小霞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，李小霞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。三亚市政府征收李小霞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李小霞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。现李小霞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，李小霞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，李小霞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：驳回李小霞的赔偿请求。
上诉人李小霞上诉称，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、三亚市政府征收李小霞家庭住宅，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、李小霞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，李小霞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.支持李小霞的原审诉讼请求。
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。本案系李小霞以三亚市政府为被告一并提起的行政赔偿之诉，但李小霞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1194号行政判决驳回诉讼请求。李小霞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，驳回李小霞的赔偿请求，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。李小霞的上诉请求不成立，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。
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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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