海南省高级人民法院
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（2017）琼行终1256号
海南省高级人民法院
行政判决书
（2017）琼行终1256号
上诉人（原审原告）梁桂琼，女，汉族，1966年5月27日出生，现住海口市。
委托代理人仲毅，海南外经律师事务所律师。
被上诉人（原审被告）海口市琼山区人民政府，住所地海口市琼山区府城街道建国路1号。
法定代表人陈昊旻，区长。
委托代理人黄崇莉，海口市琼山区人民政府法制科主任。
委托代理人ＸＸ凤，北京德和衡（海口）律师事务所律师。
原审第三人林树积，男，汉族，1955年10月15日出生，现住海口市。
委托代理人陈其强，海南唐海律师事务所律师。
委托代理人蔡晶晶，海南唐海律师事务所律师。
上诉人梁桂琼因其诉被上诉人海口市琼山区人民政府（以下简称琼山区政府）、原审第三人林树积行政征收补偿一案，不服海南省海口市中级人民法院（2017）琼01行初751号行政判决，向本院提起上诉。本院依法组成合议庭，对本案进行了审理，现已审理终结。
本案被诉行政行为：在琼山区政府于2015年12月起对海口市琼山区红城湖片区（城中村）改造项目范围内的国有土地上房屋实施征收过程中，梁桂琼以琼山区政府对其共有的619.72平方米公共道路用地分摊部分未作出行政补偿决定为由，诉请：1.依法认定琼山区政府至今未对涉案土地做出征收补偿决定的行为违法；2.撤销海口市琼山区红城湖片区（城中村）改造指挥部（以下简称琼山区改造指挥部）办公室作出的《关于D1-D14征收编号范围内619.72平方米公共道路分摊土地补偿问题的答复》（以下简称《答复》）；3.判令琼山区政府对分摊至梁桂琼名下的48.274平方米公共道路用地，按城镇混合住宅用地及出让地13911.3元/平方米的标准支付征收补偿款671554.09元；4.诉讼费由琼山区政府承担。
原审查明，2015年12月，琼山区政府发布《关于海口市琼山区红城湖片区（城中村）改造项目房屋征收的决定》，对红城湖片区棚户区（城中村）改造项目范围内的国有土地上的房屋实施征收。海口市琼山区国兴街道道客社区道客村五里56-6号的房屋（梁桂琼所有）及涉案土地，属征收范围。2016年2月25日，梁桂琼与海口市琼山区重点项目推进管理委员会签订了《海口市琼山区红城湖片区（城中村）改造项目征收货币化安置协议》。由于涉案土地的权属不明确，琼山区政府无法确认被征收主体，多次向相关职能部门调查情况，并积极回复梁桂琼反映的相关问题。2017年4月7日，琼山区改造指挥部作出《答复》，参照红城湖片区补偿方案第二章第十一条关于集体公共建设用地（含集体公共用房和配套设施补偿用地）参照片区住宅（容积率0.3）土地评估的60%给予补偿的规定，明确涉案土地补偿标准为每平方米人民币1119元。
2015年3月28日，林树积向海口市国土资源局提交了其对涉案土地不再主张该地的权属登记发证的《申请》，但未表示放弃该地的权属。在《国有土地使用证》”分摊面积”一栏中，注明梁桂琼所购买的土地为201.74平方米，备注中”剩余619.72平方米作为公共道路分摊部分”，梁桂琼所述应分摊到其名下的48.274平方米公共道路，不在梁桂琼购买的201.74平方米土地内，梁桂琼也未对涉案土地缴纳土地出让金及相关税费。且林树积以涉案土地的确权问题为由另案起诉，故梁桂琼与林树积就该涉案土地权属问题存在争议。
原审认为：一、梁桂琼是否主体适格的问题。梁桂琼属于道客村棚改征收范围内（D1-D14）的户主，涉案土地为梁桂琼等14人所建房屋前后的公共道路，在梁桂琼土地使用权证书的”记事”一栏中，已注明”剩余619.72平方米作为公共道路分摊部分”。因此，根据《中华人民共和国行政诉讼法》第二十五条第一款的规定，梁桂琼有权提起诉讼。二、琼山区政府是否主体适格的问题。涉案土地属于道客村棚改征收范围之内。琼山区政府在组织实施相关棚改项目时，成立的”海口市××区）改造指挥部办公室”，属于临时机构，受琼山区政府的委托办理相关业务，无独立诉讼主体资格，应以琼山区政府作为被告。三、琼山区政府是否构成行政不作为的问题。涉案土地的权属存在争议，琼山区政府在征收过程中，未针对任何单位和个人作出相关征收决定，而是积极与海口市琼山区相关职能部门调查情况，不构成行政不作为。四、涉案《答复》是否具有可诉性的问题。涉案《答复》是针对梁桂琼就涉案土地所反映的相关问题作出的回复函件，并不是对涉案土地作出的征收补偿决定，同时涉案土地的权属存在争议。因此，该《答复》对梁桂琼的合法权益不产生实际影响，根据《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（八）项之规定，该《答复》不具有可诉性，应驳回梁桂琼的该项起诉。五、琼山区政府是否应当给予梁桂琼6715**.09元补偿款的问题。现有证据表明，涉案土地的权属存在争议，梁桂琼主张其应分摊48.274平方米土地并获得671554.09元征收补偿款，证据不足，不予支持。综上，梁桂琼的诉讼请求证据不足，没有事实和法律依据，不予支持。依照《中华人民共和国行政诉讼法》第六十九条之规定，判决驳回梁桂琼的诉讼请求。案件受理费50元，由梁桂琼负担。
梁桂琼上诉称，一、《答复》具有可诉性。琼山区改造指挥部在进行拆迁时，已将涉案公共道路用地分摊到每一户，但对分摊到梁桂琼名下的土地未给予同宅基地相同的征收补偿和奖励。在梁桂琼通过多种途径反映诉求后，琼山区政府以改造指挥部办公室的名义作出《答复》，是就619.72平方米公共道路分摊土地向梁桂琼等14户业主作出补偿的认定，其属行政行为，原审认为不具有可诉性，显然错误。二、原审认定涉案土地的权属存在争议，证据不足。2005年4月，林树积转让其名下土地时，将土地分割为三排，中间为两条道路，归三排住户共有。梁桂琼所持《国有土地使用证》已载明619.72平方米土地为梁桂琼等14户业主的公共道路分摊部分，而林树积在其于2005年3月28日向海口市国土资源局出具的《申请》中，明确表示619.72平方米土地作为公共道路用地，并放弃该土地的使用权。因此，涉案土地已登记至梁桂琼等业主名下，梁桂琼等业主依法对涉案土地享有相关权利。另外，依据《中华人民共和国物权法》第七十三条”建筑区划内的道路，属于业主共有，但属于城镇公共道路的除外”的规定，619.72平方米土地作为建筑区划内公共道路用地，亦应为梁桂琼等14户业主共有，与林树积无关。三、梁桂琼所持《国有土地使用证》和海口市国土资源局琼山分局（以下简称琼山国土分局）作出的琼山土资字[2016]208号《关于土地权属有关问题的复函》均明确涉案公共道路用地性质为国有土地，用途为城镇混合住宅用地。《答复》将该地认定为集体公共建设用地，无事实和法律依据。《最高人民法院关于征收国有土地上房屋时是否应当对被征收人未经登记的空地和院落予以补偿的答复》[（2012）行他字第16号]明确，”土地为国有土地，未经确权登记，应确定现使用者的国有土地使用权，在征收补偿中，应将当事人合法享有国有土地使用权的院落、空地面积纳入评估范围，按照征收时的房地产市场价格，一并予以征收补偿。”依据《海口市琼山区红城湖棚户区（城中村）改造项目征收补偿方案》的规定，梁桂琼应按分摊面积依法享有每平方米13911.3元的征收补偿和奖励。综上，请求：1.撤销原审判决；2.发回重审或支持梁桂琼的原审诉讼请求；3.本案诉讼费由琼山区政府负担。
琼山区政府答辩称，一、原审判决认定事实清楚，适用法律正确。梁桂琼所称应分摊的公共道路用地不包含在其受让的土地范围内，梁桂琼也未就该地缴纳土地出让金及相关税费，亦未按照规定进行权属登记，其对涉案土地只是一种临时占用关系，无确凿证据证明梁桂琼享有涉案土地的权属。另外，林树积已就涉案土地行政登记行为另案提起诉讼，梁桂琼亦已被追加为该案的第三人，此说明涉案土地权属存有争议，涉案土地的权属归属应以生效判决为准。在此之前，梁桂琼要求琼山区政府对其进行征收补偿，没有事实根据和法律依据。二、琼山区政府从未与梁桂琼签订征收补偿安置协议，也未对其作出征收补偿决定，其直接要求法院判决政府支付土地补偿款，无事实和法律依据。另外，征收是人民政府的行政行为，人民法院作为审判机关，无权代替人民政府的行政职能作出征收行为。三、关于《答复》。该《答复》并非琼山区政府对梁桂琼作出的征收补偿决定，而是对其关心的问题进行的回复，并未损害梁桂琼的任何权益。原审认定《答复》不具有可诉性，并驳回梁桂琼的该项诉讼请求，处理结果正确。综上，梁桂琼的上诉没有事实根据和法律依据，请求驳回其上诉请求。
林树积陈述称，当时是为保证梁桂琼等人的通行和使用，并保证公共道路用地不被转让出去，林树积才申请放弃权属登记，但并没有放弃土地权属。
本院经审理查明的事实与原审判决查明的事实基本一致。但原审认定的林树积于2015年3月28日向海口市国地资源局提交《申请》的事实不当，该《申请》提交的时间应认定为2005年3月28日。本院另查明：一、2005年8月，海口市政府向梁桂琼颁发海口市国用（2005）第002734号《国有土地使用证》，登记的使用权面积为3209.59平方米，其中分摊面积为201.74平方米。另外，该证”记事”栏载明”本宗地总面积3209.59平方米，其中王贤新分摊213.94平方米，梁进程分摊107.6平方米，梁其七分摊108.02平方米，梁卫富分摊122.54平方米，吴启新分摊123.39平方米，梁桂琼分摊201.74平方米，林冠琼分摊213.09平方米，李桂珍分摊213.09平方米，刘光良分摊213.08平方米，王开茂分摊219.3平方米，王桂兰分摊213.08平方米，林敬勇分摊213.08平方米，何丽分摊213.09平方米，陈金真分摊214.83平方米。剩余619.72平方米作为公共道路分摊部分。”二、2016年5月31日，针对琼山区改造指挥部的《关于土地权属有关问题咨询意见函》，琼山国土分局向该指挥部作出琼山土资字[2016]148号《关于土地权属有关问题的复函》，认定619.72平方米的公共道路用地地使用权人仍为林树积。2016年6月13日，梁桂琼等人向琼山区改造指挥部作出《关于不同意海口市国土资源局琼山分局对619.72平方米公共道路部分土地使用权归属所作处理意见的函》，其称”作为土地权益人，不同意国土局对619.72平方米公共道路部分土地使用权权属所作的处理意见，在争议解决之前，贵指挥部不能按照国土局的处理意见将相应的征地补偿款支付给林树积”。2016年6月17日，琼山国土分局作出琼山土资字〔2016〕172号《关于撤销琼山土资字[2016]148号文的函》，以进一步核实土地权属为由，将148号文予以撤销。2016年7月7日，琼山国土分局又向琼山国土分局作出琼山土资字[2016]208号《关于土地权属有关问题的复函》，认定林树积已放弃619.72平方米土地的使用权属及该土地作为公共道路分摊部分。2016年12月26日，林树积向琼山区改造指挥部发出《律师函》，以林树积转让给梁桂琼等14人的土地不包括涉案619.72平方米国有土地，其未放弃该地使用权及已提起诉讼等为由，要求指挥部待土地权属争议解决后，再行办理土地的补偿款发放事宜。
本院查明的其他事实与原审判决查明的事实一致。
本院认为：关于琼山区政府是否存在行政不作为的问题。本案中，虽然琼山区政府至梁桂琼提起本案诉讼时止也未就涉案公共道路用地作出征收补偿决定，但是在涉案项目启动后，具体负责征收工作的琼山区改造指挥部就梁桂琼等人反映土地性质和补偿标准问题进行调查及作出《答复》，并在梁桂琼等人和林树积分别对公共道路用地提出权属主张后，又就土地权属的问题向琼山国土分局致函咨询调查。根据上述事实，琼山区政府在征收过程中已就土地性质、权属等主动进行调查，在林树积于此过程中又对土地权属提起诉讼的情况下，未就涉案公共道用地作出征收补偿决定，并不构成行政不作为，故梁桂琼关于依法认定琼山区政府至今未对涉案土地做出征收补偿决定的行为违法的诉讼请求不能成立。
关于《答复》的问题。虽然琼山区改造指挥部在《答复》中明确有公共道路用地的性质、补偿标准，但该答复是针对梁桂琼等人所反映问题的回复，而不是对涉案土地所作的征收补偿决定，亦不是征收补偿的最终依据，该《答复》对梁桂琼的合法权益不产生实际影响。原审依据《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（八）项之规定，认为该《答复》不具有可诉性，应驳回梁桂琼的该项起诉，该认定虽然正确，但以判决形式驳回梁桂琼的该项诉讼请求的处理结果不当，应另外作出裁定驳回起诉，本院对此予以指正。
关于应否责令琼山区政府就公共道路用地中的分摊部分土地向梁桂琼支付征收补偿款的问题。本案属不履行法定职责案件，琼山区政府虽依前述论述不构成行政不作为，但其尚未就涉案公共道路用地的征收事项作出过行政决定，人民法院在行政机关作出行政决定之前，不宜径行作出司法裁判。另外，被征收人明确是征收补偿的前提需。但根据本案查明事实，在涉案项目启动后，梁桂琼等人和林树积分别致函琼山区改造指挥部，均对619.72平方米公共道路用地提出权属主张，且林树积还就此另案提起了诉讼。在该土地权属产生争议的情况下，梁桂琼单方提起行政诉讼主张征收补偿费用，证据亦属不足。梁桂琼等人与林树积应根据其双方的土地使用权转让协议等证据，通过协商或民事诉讼等途径，确定涉案公共道路用地的权属后，方可依法主张征收补偿费用。
综上所述，原审判决适用法律和案件基本处理结果正确，应予维持。梁桂琼的上诉请求和理由不能成立，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。
二审案件受理费50元，由上诉人梁桂琼负担。
本判决为终审判决。
审判长黄胜敏
审判员郑怀全
审判员麻红丽
书记员王婉
附：本判决适用的相关法律依据
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