海南省高级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼行终1211号
海南省高级人民法院
行政判决书
（2017）琼行终1211号
上诉人（原审原告）符国辉，男，1985年8月21日出生，汉族，住海南省三亚市。
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，住所地海南省三亚市新风路257号。
法定代表人吴岩峻，该市市长。
委托代理人周丽，三亚市法制办公室工作人员。
上诉人符国辉因其诉被上诉人三亚市人民政府（以下简称三亚市政府）房屋征收一案，不服海南省三亚市中级人民法院（2016）琼02行初518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。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。
本案被诉行政行为：三亚市政府于2015年9月30日起对三亚市东岸村棚户区改造项目范围内的国有土地上的房屋开始实施征收，于2016年8月10日拆除了符国辉位于东岸村棚户区改造项目用地征收范围内的房屋。符国辉不服，诉至人民法院，请求：判决确认三亚市政府征收其家庭住宅的行政行为违法，并依法审查三亚市政府作出的三府〔2015〕185号《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）和三府办〔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）的合法性。
原审查明，2015年9月30日，三亚市政府作出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符国辉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，明确了符国辉被征收房屋的规格、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。符国辉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，并于2016年4月29日出具《承诺书》，承诺积极配合东岸村棚户区拆迁改造工作，并按有关政策及安置方案的规定和要求进行丈量登记、签订协议及搬迁，如违背承诺愿意承担相应后果。同日，符国辉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》，双方约定：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504.09平方米给予乙方生活困难补助费277249.5元（标准为550元/平方米）和搬迁奖励费126022.5元（标准为250元/平方米），合计403272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，符国辉领取了前述协议约定的全部款项。2016年8月10日，吉阳区政府对符国辉被征收的房屋进行了拆除。2016年11月8日，符国辉以三亚市政府征收其房屋的行政行为违法为由，提起本案诉讼。同日，符国辉另案对三亚市政府提起行政赔偿诉讼，请求判令三亚市政府赔偿其位于东岸村委会土地范围内的504平方米家庭住宅被征收的损失10080000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符国辉建筑材料未能回收的损失6万元）及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）。
原审另查明，符国辉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指派吉阳区住建局等相关部门的工作人员对符国辉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。符国辉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，并书面承诺积极配合东岸村棚户区拆迁改造工作，按规定签订协议及搬迁。随后，符国辉在与吉阳区政府下属吉阳区住建局签订《房屋拆迁补助协议书》后领取了全部补助款。前述事实表明，符国辉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没有异议。因此，三亚市政府征收符国辉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。符国辉主张三亚市政府征收其房屋的行政行为违法，其领取补助款的行为不影响其对三亚市政府征收行为提出异议并主张赔偿权利。经查，在符国辉与吉阳区政府下属吉阳区住建局签订的《房屋拆迁补助协议书》中，双方已经明确约定，符国辉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。由此可以认定，符国辉在同意签订《房屋拆迁补助协议书》并领取全部补助款后，已对其被征收的涉案房屋丧失了权利，三亚市政府征收拆除涉案房屋的行为未违反双方的协议约定。现符国辉在双方协议已经履行完毕后，又反悔要求确认三亚市政府征收行为违法，没有充分的事实根据和法律依据，依法不予支持。相应地，符国辉申请原审法院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的理由不充分，依法不予准许。符国辉诉求法院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。原审法院认为，首先，符国辉在提起本案诉讼之前，并未另案提起行政诉讼,请求撤销185号征收决定，故其在本案中不存在重复起诉的情形。但由于符国辉在三亚市政府征收其房屋的过程中，已经与征收实施单位签订《房屋拆迁补助协议书》并领取了全部补助款，按照双方协议约定，涉案房屋权属已经转移归征收实施单位。因此，符国辉现在以其涉案房屋权益受到三亚市政府征收行为侵害为由，要求对三亚市政府征收行为所依据的185号征收决定和270号补偿安置方案的合法性进行审查缺乏相应的权利依据，依法不予支持。综上所述，三亚市政府征收符国辉涉案房屋的行政行为依据充分，程序并无不当。符国辉的诉讼请求依据不足，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）项之规定，判决：驳回符国辉的诉讼请求。案件受理费50元，由符国辉负担。
上诉人符国辉上诉称，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、三亚市政府征收符国辉家庭住宅，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、符国辉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。吉阳区住建局与符国辉签订的《房屋拆迁补助协议书》不具有合法性，吉阳区住建局不具有签约资格，无法受让符国辉的房屋。三亚市政府未作出任何行政认定即直接拆除符国辉的房屋，对此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，符国辉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，原审判决妨害上诉人的诉讼权利，请求：一、撤销原审判决；二、改判三亚市政府征收符国辉位于东岸村范围家庭住宅的行政行为违法。
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。本院另查明：一、关于对185号征收决定和270号补偿安置方案的合法性进行审查的诉讼请求，符国辉在原审庭审中确认其是请求人民法院将185号征收决定和270号补偿安置方案作为规范性文件进行审查。二、就185号征收决定，案外人王某等15人另案提起行政诉讼请求撤销该决定，原审法院于2017年4月5日作出（2016）琼02行初339号行政判决，确认三亚市政府作出185号征收决定的行政行为违法。在王某等15人不服提起上诉后，本院于2017年8月21日作出（2017）琼行终762号行政判决，驳回王某等15人的上诉，维持原判。
本院认为：本案争议焦点为三亚市政府征收符国辉位于东岸村委会土地范围内家庭住宅的行政行为是否违法。三亚市政府在征收东岸村棚户区改造项目用地的过程中，将185号征收决定和270号补偿安置方案进行公示，并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指派吉阳区住建局等相关部门的工作人员对符国辉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，符国辉签名予以认可，并书面承诺积极配合东岸村棚户区拆迁改造工作，按规定签订协议及搬迁。因此，三亚市政府征收符国辉涉案房屋的行政行为事实清楚，程序并无不当。符国辉签订《房屋拆迁补助协议书》，并领取了全部补助款。因此，符国辉对其房屋的征收补偿标准清楚且同意，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没有异议。根据双方签订的《房屋拆迁补助协议书》中关于”因乙方（符国辉）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......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......”的约定，符国辉签订《房屋拆迁补助协议书》并领取全部补助款后，已对其被征收房屋丧失了权利，现符国辉在双方协议已经履行完毕后，又反悔要求确认三亚市政府的征收行为违法，没有事实根据和法律依据，本院依法不予支持。
至于符国辉要求将185号征收决定和270号补偿安置方案作为规范性文件进行合法性审查的问题。因上述征收决定和补偿安置方案系行政行为，而非规范性文件，且该诉讼标的亦已为生效裁判所羁束，故依据《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（九）项之规定，符国辉的该项诉求亦应予以驳回。
综上所述，三亚市政府征收符国辉涉案房屋的行政行为事实清楚，程序并无不当；原审判决认定事实清楚、程序合法、适用法律正确，依法应予维持；符国辉的上诉请求依据不足，依法应予驳回。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元由上诉人符国辉负担。
本判决为终审判决。
审判长朱望锋
审判员郑怀全
审判员黄胜敏
审判员麻红丽
审判员陈焱
二○一七年十一月八日
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。
《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》
第三条有下列情形之一，已经立案的，应当裁定驳回起诉：
（一）不符合行政诉讼法第四十九条规定的；
（二）超过法定起诉期限且无正当理由的；
（三）错列被告且拒绝变更的；
（四）未按照法律规定由法定代理人、指定代理人、代表人为诉讼行为的；
（五）未按照法律、法规规定先向行政机关申请复议的；
（六）重复起诉的；
（七）撤回起诉后无正当理由再行起诉的；
（八）行政行为对其合法权益明显不产生实际影响的；
（九）诉讼标的已为生效裁判所羁束的；
（十）不符合其他法定起诉条件的。
人民法院经过阅卷、调查和询问当事人，认为不需要开庭审理的，可以迳行裁定驳回起诉。
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