海南省海口市中级人民法院
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（2016）琼01行赔初21号
原告海南茂丰生物科技有限公司，住所地海口市南海大道西。
法定代表人钟润才，总经理。
委托代理人胡振，海南万理律师事务所律师。
委托代理人王海祥，海南万理律师事务所律师。
被告海口市秀英区人民政府，住所地海口市秀英区秀华路。
法定代表人王业天，区长。
委托代理人唐昌鸿，海口市秀英区国土执法大队二中队队长。
委托代理人黄昭毅，海南维特律师事务所律师。
原告海南茂丰生物科技有限公司（以下简称茂丰公司）在其诉被告海口市秀英区人民政府（以下简称秀英区政府）房屋行政强制一案的同时，向本院提起本案行政赔偿诉讼。本院于2016年10月31日立案后，向被告送达了起诉状副本及应诉通知书。本院依法组成合议庭，于2016年12月9日公开开庭审理了本案。原告茂丰公司的委托代理人胡振、王海祥和被告秀英区政府的委托代理人唐昌鸿、黄昭毅到庭参加诉讼。本案现已审理终结。
原告茂丰公司诉称：原告为肥料生产企业，并已经取得国家复混肥料的生产许可证。为扩大生产需要，原告按法律、法规和政策规定与海口市秀英区长流镇迈万（文彬）经济合作社签订《土地承包合同书》，承包了荒地共约5.5亩作为建厂生产农用肥料之用。合同签订后，原告投入资金对荒地进行了三通一平，修建了厂房、购置了设备，招聘了技术人员和工人进行肥料生产。近十年来，原告依法经营，照章纳税，各种肥料产品的生产、销售均稳定发展，为海南社会农业生产，农村经济的发展做出了一定的贡献。原告承包农村集体闲置荒地进行生产建设，虽然在厂房的修建上有些手续不尽完善，但从根本上并没有损害国家、社会、集体以及村民的利益。但是，2016年4月29日中午，在原告未收到任何行政处罚决定或行政强制文书，且没有提前通知的情况下，被告对原告正在生产经营的厂房、综合楼、仓库等予以强制拆除。原告向现场强拆人员询问缘由并请求停止强拆，但未能阻止。顷刻间，原告厂房等建筑物轰然倒塌，化为废墟，生产所使用的生产设备、生产成品和原材料也被当场毁坏、掩埋，成为废品。原告所享有的近十一年来的承包经营权也无法继续行使。原告认为，即便原告以承包集体土地方式建设厂房的行为存在法律瑕疵，相关职能部门也应依据《中华人民共和国行政处罚法》、《中华人民共和国行政强制法》等法律、法规和政策的规定，按法定程序进行立案调查。海口市国土资源局曾于2012年以原告违法用地为由，作出行政处罚决定并申请海口市秀英区人民法院强制执行。但该院以（2013）秀行审字第30号行政裁定不准予执行。现被告在没有任何行政处罚依据的情况下，不经通知、未经法定程序突然组织强制拆除，既剥夺了原告依法进行听证、申辩、复议的权利，更没有给予原告自行拆除、处置自己资产的机会，把原告的经济损失扩大到了最大的程度，事发后，经原告委托有关专业机构进行初步评估，原告的各项经济损失已达到1500万元。期间，原告也多次找被告协商赔偿事宜，被告虽未拒绝与原告协商，但始终没有具体安排协商时间和确定协商方案。综上，被告实施的涉案拆除行为严重违法，依法应赔偿其违法行为给原告造成的经济损失。故原告特请法院：1、判令被告赔偿原告因被告2016年4月29日所组织实施的强拆行为给原告造成各项经济损失人民币1500万元（最终以经司法程序认定的结论为准）；2、本案鉴定费及原告所支付的律师费等诉讼费用由被告承担。
原告茂丰公司向本院提供了如下证据：1、《承包土地合同书》；2、海南茂丰生物科技有限公司《全国工业产品生产许可证》；3、海口市秀英区人民法院（2013）秀行审字第30号行政裁定书；4、搜狐网站新闻《海口问责2016年《亮见》第三期曝光问题的单位和个人》；5、原告工厂平面图；6、2016年4月29日原告工厂被拆除的现场照片和现状照片。2016年11月22日，原告茂丰公司向本院递交《鉴定申请书》，申请对涉案经济损失进行鉴定。
被告秀英区政府辩称：原告未经任何部门批准，擅自在涉案土地上建设肥料加工厂，存在行政违法事实。2012年8月22日，海口市国土资源局执法检查人员吴岳森、吴孔儒对原告主管钟永辉进行了土地违法行为调查询问笔录，原告对未经审批更改土地用途的事实没有异议。2012年10月11日，海口市国土资源局向原告留置送达市土资执字[2012]821号《海口市国土资源局行政处罚告知书》，明确告知原告违法事实、限期拆除的要求、拟处罚内容以及陈述申辩的权利。2012年10月16日，海口市国土资源局向原告留置送达市土资执字[2012]855号《海口市国土资源局行政处罚决定书》，正式作出处罚决定、限期自行拆除恢复土地原状、依法处以罚款以及申请复议和诉讼的权利。因此，对原告作出的处罚决定，合法有效。海口市国土资源局在作出处罚决定后，原告在法定期限内既没有申请复议或者诉讼，也没有纠正自身违法行为。经催告后，海口市国土资源局于2013年3月向海口市秀英区人民法院申请强制执行。虽然该院未予执行，但并未撤销行政处罚决定，行政处罚决定依然有效。海口市国土资源局将此类案件请示海口市人民政府。根据海南省高级人民法院的复函精神”行政机关对于非法占用土地非诉案件依法具有强制执行权，行政机关可依法实施强制拆除”，海口市人民政府作出如下批复：”对法院不予受理的、驳回或终结执行及只执行财产不执行拆除内容的案件，因通过司法途径强制执行已无法落实，建议对此类案件作结案处理，并移交区政府组织有关部门联合执行。”海口市国土资源局依据海口市人民政府的前述批复，将案件移交给被告组织相关部门联合执行。因此，被告执行的行政处罚决定合法有效，强制拆除行为合法。原告未提供任何证据、清单、图片用于证明被告的拆除行为给其合法财产造成了经济损失，也没有任何评估机构的评估文件，应当承担举证不足的不利后果。而且，根据拆除现场照片，实施拆除时已将电器、厨具、家具等生活用品搬出，对厂房的拆除也仅限于部分区域，并未破坏原料、机器等物资。因此，被告在执行过程中，充分照顾了原告的财产权利。综上，原告在未经批准的情况下，擅自将林果用地用于非农建设，拒不整改。而且，涉案处罚决定合法有效，被告依法执行该决定应当支持。原告提出1500万元的赔偿请求没有事实依据，请求人民法院依法驳回原告的诉讼请求。
被告秀英区政府向本院提供了如下证据、依据：1、海口市秀英区长流镇化肥加工厂用地示意图；2、现场照片；3、行政相对人违反的相关法律法规；4、《责令停止土地违法行为通知书》的送达回证；5、2012年8月22日《询问笔录》；6、市土资执字[2012]821号《海口市国土资源局行政处罚告知书》及送达回证；7、市土资执字[2012]855号《海口市国土资源局行政处罚决定书》及送达回证；8、海土资秀英字[2013]15号《海口市国土资源局申请法院强制执行事先催告书》及送达回证；9、海土资秀英字[2013]43号《海口市国土资源局强制执行申请书》；10、行政行为相关法律法规；11、处理拆违工作的请示及意见；12、海口市土地利用总体规划局部图（1997-2010）（标注了涉案土地）；13、《海口市人民政府关于〈海口市土地利用总体规划〉有关事项的通告》；14、拆除进行中拍摄的照片；15、拆除后拍摄的照片。
本案各方当事人提交的证据材料及其诉、辩、陈述意见，业经庭审质证和核实，记录在案，可以作为认定本案事实的证据和依据。
经审理查明：2007年，原告与海口市长流镇迈万经济合作社签订了《承包土地合同书》，拟承包土地用于建设肥料厂项目。之后，原告在未办理有关建设许可手续的情况下，建设了涉案肥料厂，并已投入生产经营。至今，原告的涉案建设行为尚未取得任何行政许可。2012年10月16日，海口市国土资源局（以下简称市国土局）就原告的涉案建设行为，作出市土资执字[2012]855号《海口市国土资源局行政处罚决定书》（以下简称855号决定），决定对原告作出如下处罚：”一、限你公司自接到本处罚决定书之日起15日内自行拆除在非法占用的土地上新建的建筑物和其他设施，恢复土地原状，退还非法占用的土地；二、按照实际占用土地面积9052.26平方米处以每平方米30元罚款，即罚款271567.8元。限你公司自收到本处罚决定书之日起十五日内，到海口市行政服务中心国土窗口开具票据后将上述罚款缴入指定银行帐户。”2012年10月18日，市国土局将855号决定送达给原告。2013年1月23日，市国土局作出海土资秀英字[2013]15号《海口市国土资源局申请法院强制执行事先催告书》，催告原告在收到该书之日起十日内履行855号决定的处罚事项。2013年1月31日，市国土局将前述催告书送达给原告。2013年4月2日，市国土局向海口市秀英区人民法院申请强制执行855号决定。2013年4月25日，海口市秀英区人民法院就前述申请，作出（2013）秀行审字第30号行政裁定，裁定不准予强制执行。2015年6月19日，市国土局作出海土资执字[2015]148号《海口市国土资源局关于依法申请法院强制执行土地非诉案件存在问题的请示》，向海口市人民政府请示并建议”（一）对法院不予受理、驳回或终结执行及只执行财产不执行拆除内容的案件，因通过司法途径强制执行已无法落实，且我局又没有行政处罚强制执行权，故建议对此类案件作结案处理，并移送各区政府组织有关部门联合执行。（二）为解决国土资源非诉案件执法问题，建议市政府组织法院、市法制局、国土资源局等相关部门，成立工作小组，探索建立政府与法院如何协同执行国土资源非诉案件的新机制。”2015年7月6日，海口市人民政府批示同意前述请示中的建议（一）。2016年4月28日，市国土局将855号决定移送给被告组织有关部门联合执行。次日，被告组织人员对原告的涉案加工厂项目进行强制拆除，但对存放物资及设备的相关房屋，并未完全推毁。2016年10月31日，原告在向本院提起确认涉案强制拆除行为违法诉讼的同时，一并提出本案行政赔偿请求。
本院认为：《最高人民法院关于审理行政赔偿案件若干问题的规定》第三十三条规定，”被告的具体行政行为违法但尚未对原告合法权益造成损害的，或者原告的请求没有事实根据或法律根据的，人民法院应当判决驳回原告的赔偿请求。”本案中，原告的涉案建设行为发生在2007年之后，依法应当办理有关建设许可手续后，才能实施建设行为。但是，原告至今仍未取得任何行政许可，故其擅自建设的涉案建筑物，不属于合法权益范畴。况且，原告于2012年10月18日收到市国土局855号决定后，一直未按照该决定的要求自行拆除涉案建筑物，才导致被告于2016年4月29日为执行该决定而实施了涉案强制拆除行为，且未超出该决定的处罚内容。因此，被告的涉案强制拆除行为，并未损害原告的合法权益。根据前述法条的规定，对原告的赔偿请求，应予驳回。鉴于原告的赔偿请求依法不应支持，故对原告的鉴定申请，应不予准许，以避免增加原告的负担。综上所述，原告的赔偿请求，于法无据，应予驳回。依照《最高人民法院关于审理行政赔偿案件若干问题的规定》第三十三条的规定，判决如下：
驳回原告海南茂丰生物科技有限公司的赔偿请求。
如不服本判决，可在判决书送达之日起十五日内，向本院递交上诉状，并按对方当事人的人数提出副本，上诉于海南省高级人民法院。
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