海南省高级人民法院
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（2017）琼行赔终28号
海南省高级人民法院
行政赔偿判决书
（2017）琼行赔终28号
上诉人（原审原告）文永先，女，1961年10月5日出生，汉族，住昌江黎族自治县。
委托代理人梁如秀，海南林源律师事务所律师。
被上诉人（原审被告）昌江黎族自治县人民政府，住所地昌江黎族自治县石碌镇昌江大道。
法定代表人林安，县长。
被上诉人（原审被告）昌江黎族自治县国土资源局，住所地昌江黎族���治县石碌镇人民北路169号。
法定代表人李锋，局长。
被上诉人（原审被告）昌江黎族自治县住房和城乡建设局，住所地昌江黎族自治县石碌镇东风路。
法定代表人林英俊，局长。
被上诉人（原审被告）昌江黎族自治县石碌镇人民政府。住所地昌江黎族自治县石碌镇人民北路***号。
法定代表人符明，镇长。
上列四被上诉人的共同委托代理人符旭，昌江黎族自治县城乡管理综合执法局科员。
上列四被上诉人的共同委托代理人周正凡，海南天赐律师事务所律师。
上诉人文永先因其诉被上诉人昌江黎族自治县人民政府、昌江黎族自治县国土资源局、昌江黎族自治县住房和城乡建设局、昌江黎族自治县石碌镇人民政府（以下分别简称昌江县政府、昌江县国土局、昌江县住建局、石碌镇政府或统称昌江县政府等四单位）行政赔偿一案，不服海南省第二中级人民法院(2016)琼97行赔初24号行政赔偿判决，向本院提起上诉。本院受理后，依法组成合议庭，对本案进行了审理，现已审理终结。
原审查明，自2001年起，文永先在××县橡胶林）修建了两间面积为510.18平方米的砖混结构平顶房。2009年1月1日，红林基地分公司（海南省国营红林农场，以下简称红林农场）与文永先签订《开割胶园职工家庭长期承包经营责任书》，于2009年1月1日将红林农场七队的橡胶及土地发包给文永先，并约定”承乙方监护、管理好胶园防护林。不得擅自对胶园进行更新或改变胶园土地用途”。文永先修建的房屋在其所承包的土地范围内，所承包的土地属于国有农用地，文永先修建上述房屋时未取得城乡规划主管部门颁发的建设工程规划许可证。2016年3月23日，石碌镇政府、昌江县住建局、昌江县国土局组成联合调查组，对文永先修建上述建筑物的行为进行调查。2016年4月25日，石碌镇政府、昌江县住建局和昌江县国土局联合对文永先作出《行政处罚事先告知书》，拟对文永先作出限期拆除擅自建设的违法建筑物的行政处罚，告知文永先有陈述申辩和申请听证��权利。2016年5月12日，石碌镇政府、昌江县住建局和昌江县国土局联合对文永先作出《行政处罚决定书》，限文永先在该决定书下达之日起七日内自行拆除其擅自建设的违法建筑物。2016年5月23日，文永先向昌江黎族自治县人民法院提起行政诉讼，诉请撤销上述《行政处罚决定书》。2016年6月16日，石碌镇政府向昌江县政府提交《石碌镇人民政府关于依法拆除木棉苑小区北侧（红林农场七队橡胶林）十六户人违法建筑的请示》。2016年7月12日，昌江县政府作出《昌江黎族自治县人民政府关于同意依法拆除木棉苑小区北侧（红林农场七队橡胶林）违法建筑的批复》，同意由石碌镇政府、昌江县住建局和昌江县国土局作为实施主体，昌江县城乡管理综合执法局、昌江县公安局等相关部门配合，依法对包括文永先在内的16户在木棉苑小区北侧（红林农场七队橡胶林）擅自建设的违法建筑实施强制拆除。该批复附有《昌江黎族自治县依法强制拆除木棉苑小区北侧（红林农场七队橡胶林）十六户违法建筑工作方案》。2016年7月15日，石碌镇政府、昌江县住建局和昌江县国土局联合向文永先发出《履行行政处罚决定催告书》，限文永先在接到该催告书之日起3日内自行拆除所建违法建筑物。同日，石碌镇政府、昌江县住建局和昌江县国土局联合作出《关于责令文永先拆除违法建筑的公告》并进行张贴。2016年7月22日，石碌镇政府、昌江县住建局和昌江县国土局联合向文永先发出《关于强制拆除文永先违法建筑决定的通知》，决定于2016年7月28日对文永先的违法建筑进行强制拆除。同日，石碌镇政府、昌江县住建局和昌江县国土局联合作出《关于强制拆除文永先违法建筑决定的公告》并进行张贴。2016年7月28日，文永先修建的上述建筑物被强制拆除。文永先遂提起本案诉讼，请求：一、判令昌江县政府等四单位连带赔偿文永先因强制拆除造成建筑物的经济损失570262元（以鉴定评估为准）；二、判令昌江县政府等四单位连带赔偿文永先因强制拆除造成的律师服务费4500元和搬家费3000元。
原审另查明，在实施强制拆除行为前，石碌镇政府委托相关评估机构对文永先修建的房屋及附着物的价值进行了评估。
原审再查明，文永先在提起本案行政赔偿诉讼的同时，对昌江县政府等四单位于2016年7月28日强制拆除其建筑物的行政行为一并提起了行政诉讼，请求依法确认强制拆除行为违法。原审法院于2016年7月28日作出（2016）琼97行初192号行政判决，确认上述强制拆除行为违法。
原审认为，根据《中华人民共和国国家赔偿法》第二条、第四条第（四）项和《最高人民法院关于审理行政赔偿案件若干问题的规定》第一条的规定，违法行政行为给公民、法人或者其他组织的合法权益造成损害的，受害人���取得赔偿的权利。从上述规定可知，受害人取得赔偿的条件有两个：一是有关行政行为被确认违法或被撤销；二是被确认违法或被撤销的行政行为给公民、法人或者其他组织的合法权益造成了损害。本案中，文永先主张行政赔偿系因其认为昌江县政府等四单位强制拆除其建筑物的行政行为违法，对其财产造成了损害。虽然原审作出的（2016）琼97行初192号行政判决确认了强制拆除行为违法，但根据《中华人民共和国土地管理法》第四十四条第一款”建设占用土地，涉及农用地转为建设用地的，应当办理农用地转用审批手续”和《海南省城乡规划条例》第三十七条”在城市和县、自治县人民政府所在地镇、特定地区规划区内新建、扩建和改建建筑物、构筑物、道路、管线和其他工程设施的，建设单位或者个人应当向市、县、自治县��民政府城乡规划主管部门申请办理建设工程规划许可证。在其他镇规划区（不含特定地区）内新建、扩建和改建建筑物、构筑物、道路、管线和其他工程设施的，建设单位或者个人应当向市、县、自治县人民政府城乡规划主管部门或者省人民政府确定的镇人民政府申请办理建设工程规划许可证”的规定，由于文永先被强制拆除的建筑物所占用的土地属于国有农用地，其在修建本案被强制拆除的建筑物时既未办理农用地转为建设用地审批手续，又未向城乡规划主管部门申请办理建设工程规划许可证，而昌江县住建局、昌江县国土局和石碌镇政府在对文永先修建的建筑物进行强制拆除时就已经将其认定为违法建筑，故昌江县政府等四单位拆除该违法建筑给文永先造成的损失显然不属于受法律保护的合法权益。因此，文永先在本案中提出的赔偿请求没有事实��法律根据，对其赔偿请求依法应予驳回。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，判决驳回文永先的赔偿请求。
文永先上诉称，一、文永先自筹资金建设涉案建筑物是对土地进行农业综合开发，是为了更好管理橡胶、种植农作物和发展农业综合体，亦经国营红林农场批准同意，当地政府和农场从未对此提出异议。由此可见，文永先的建筑物不属于违法建设，也未改变土地性质，无须办理农用地转用审批手续。二、文永先的建筑物是其用自己合法财产所建的生产设施，并非住宅建设，亦非违法建��物，理应受法律保护。三、文永先所建的建筑物并不违反城乡规划。石碌镇政府、昌江县住建局在诉讼中提供的《昌江黎族自治县城乡整体规划》的适用时间是2012年到2030年，而文永先所建的建筑物早在2005年就已经建好，建筑物所在地不在昌江县政府的城乡规划范围内，无须申请办理建设工程规划许可证。四、文永先建造建筑物的历史原因是为响应海南省农垦总局发展农场自营经济的号召，个人不存在任何过错和构成土地侵权。综上，文永先所建的建筑物是合法建筑，其损失理应与吉定光和赵诗金两个被强拆对象一样按评估价得到赔偿，请求：1.撤销原审判决；2.改判支持文永先原审的诉讼请求。
昌江县政府等四单位共同答辩称，文永先的涉案建筑物为违法建设，昌江县政府等四单位予以强制拆除，符合法律规定。
本院二审查明的事实与原审认定的事实一致。本院另查明，就文永先诉请撤销石碌镇政府、昌江县住建局和昌江县国土局作出的《行政处罚决定书》一案，昌江黎族自治县人民法院于2016年9月26日作出（2016）琼9026行初15号行政判决驳回文永先的诉讼请求。在文永先不服提起上诉后，原审法院于2017年6月28日作出（2017）琼97行终39号行政判决驳回了该上诉。另��，就本案所涉强制拆除行为违法之诉，在原审法院作出（2016）琼97行初192号行政判决确认该行政行为违法之后，本院二审作出（2017）琼行终898号行政判决，驳回文永先的上诉，维持原判。
本院认为，本案系文永先以昌江县政府等四单位为共同被告一并提起的请求依法给予行政赔偿之诉。文永先提起的确认本案行政赔偿所涉强制拆除其建筑物行政行为违法的诉讼，在原审法院作出（2016）琼97行初192号行政判决确认该行政行为违法后，又被本院二审所作出的（2017）琼行终898号行政判决予以维持。依据《中华人民共和国国家赔偿法》第二、第三、第四条的规定，行政机关违法行使职权造成当事人合法权益受到损害的，虽然受害人享有获得国家赔偿的权利，但是同时根据上述规定，国家赔偿保护的是行政相对人的合法权益，亦即受害人得到国家赔偿的前提是其受损权益为合法权益。因此，文永先能否得到国家赔偿的关键是其本案被拆建筑物是合法建筑还是违法建筑。根据本案二审查明事实，昌江县住建局、昌江县国土局和石碌镇政府联合作出《行政处罚决定书》认定涉案建筑物为违法建筑并要求文永先限期拆除，在文永先不服提起诉讼后，经昌江黎族自治县人民法院一审和原审法院二审审查，该《行政处罚决定书》的效力得到了司法确认。即涉案建筑物属违法建筑已得到了司法确认，其被强制拆除，虽拆除行为违法，但并未损害文永先的合法权益，故原审法院依据《最高人民法院关于审理行政赔偿案���若干问题的规定》第三十三条的规定驳回文永先的赔偿请求，并无不当。综上，原审判决认定基本事实清楚，适用法律正确，案件处理结果亦无不当。文永先的上诉请求和理由不成立，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。
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
二○一七年十一月二十二日
法官助理皮小慢
书记员梁棚
书记员梁棚
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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[{法规名称:\'《中华人民共和国合同法》\',Items:[{法条名称:\'第九十三条第一款\',法条内容:\' 第九十三条
当事人协商一致，可以解除合同。
当事人可以约定一方解除合同的条件。解除合同的条件成就时，解除权人可以解除合同。
\'},{法条名称:\'第一百零七条\',法条内容:\'
第一百零七条
当事人一方不履行合同义务或者履行合同义务不符合约定的，应当承担继续履行、采取补救措施或者赔偿损失等违约责任。
\'},{法条名称:\'第一百一十三条第一款\',法条内容:\'
第一百一十三条
当事人一方不履行合同义务或者履行合同义务不符合约定，给对方造成损失的，损失赔偿额应当相当于因违约所造成的损失，包括合同履行后可以获得的利益，但不得超过违反合同一方订立合同时预见到或者应当预见到的因违反合同可能造成的损失。
经营者对消费者提供商品或者服务有欺诈行为的，依照《中华人民共和国消费者权益保护法》的规定承担损害赔偿责任。
\'}]},{法规名称:\'《中华人民共和国物权法》\',Items:[{法条名称:\'第一百七十六条\',法条内容:\'
第一百七十六条
被担保的债权既有物的担保又有人的担保的，债务人不履行到期债务或者发生当事人约定的实现担保物权的情形，债权人应当按照约定实现债权；没有约定或者约定不明确，债务人自己提供物的担保的，债权人应当先就该物的担保实现债权；第三人提供物的担保的，债权人可以就物的担保实现债权，也可以要求保证人承担保证责任。提供担保的第三人承担担保责任后，有权向债务人追偿。
\'},{法条名称:\'第一百七十八条\',法条内容:\'
第一百七十八条 担保法与本法的规定不一致的，适用本法。
\'},{法条名称:\'第一百七十九条第一款\',法条内容:\' 第一百七十九条
为担保债务的履行，债务人或者第三人不转移财产的占有，将该财产抵押给债权人的，债务人不履行到期债务或者发生当事人约定的实现抵押权的情形，债权人有权就该财产优先受偿。
前款规定的债务人或者第三人为抵押人，债权人为抵押权人，提供担保的财产为抵押财产。
\'},{法条名称:\'第一百八十条第一款\',法条内容:\'
第一百八十条 债务人或者第三人有权处分的下列财产可以抵押：
（一）建筑物和其他土地附着物；
（二）建设用地使用权；
（三）以招标、拍卖、公开协商等方式取得的荒地等土地承包经营权；
（四）生产设备、原材料、半成品、产品；
（五）正在建造的建筑物、船舶、航空器；
（六）交通运输工具；
（七）法律、行政法规未禁止抵押的其他财产。
抵押人可以将前款所列财产一并抵押。
\'},{法条名称:\'第一百八十七条\',法条内容:\' 第一百八十七条
以本法第一百八十条第一款第一项至第三项规定的财产或者第五项规定的正在建造的建筑物抵押的，应当办理抵押登记。抵押权自登记时设立。
\'}]},{法规名称:\'最高人民法院关于适用《中华人民共和国担保法》若干问题的解释\',Items:[{法条名称:\'第四十七条\',法条内容:\'
第四十七条
以依法获准尚未建造的或者正在建造中的房屋或者其他建筑物抵押的，当事人办理了抵押物登记，人民法院可以认定抵押有效
\'}]},{法规名称:\'《中华人民共和国民事诉讼法》\',Items:[{法条名称:\'第一百四十四条\',法条内容:\'第一百四十四条
系统尚未收录或引用有误
\'}]},{法规名称:\'《最高人民法院关于民事诉讼证据的若干规定》\',Items:[{法条名称:\'第二条第一款\',法条内容:\'
第二条 当事人对自己提出的诉讼请求所依据的事实或者反驳对方诉讼请求所依据的事实有责任提供证据加以证明。
没有证据或者证据不足以证明当事人的事实主张的，由负有举证责任的当事人承担不利后果。
\'}]}]};if
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