海南省高级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼行终1731号
海南省高级人民法院
行政判决书
(2017)琼行终1731号
上诉人（原审原告）陈仕梅，女，1959年6月20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。
委托代理人许云敬，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，该市市长。
委托代理人郑大平，三亚市法制办公室工作人员。
上诉人陈仕梅诉被上诉人三亚市人民政府（以下简称三亚市政府）房屋行政征收纠纷一案，不服海南省三亚市中级人民法院（2017）琼02行初154号行政判决，向本院提起上诉。本院于2017年11月20日立案受理后，依法组成合议庭，公开开庭审理了本案。上诉人陈仕梅及其代理人陈太真、被上诉人三亚市政府的委托代理人郑大平到庭参加诉讼。因本案与本院同期受理的车燕珍等人分别诉三亚市政府房屋征收及行政赔偿41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42宗案件合并审理。本案现已审理终结。
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的国有土地上的所有房屋。同日，三亚市政府办公室作出《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》（三府办〔2015〕270号，以下简称270号补偿安置方案）。此后，征收实施单位三亚市吉阳区人民政府（以下简称吉阳区政府）委托三亚市吉阳区住房和城乡建设局（以下简称吉阳区住建局）与陈仕梅签订《房屋拆迁补助协议书》，并依约支付了相关款项。2016年8月27日，吉阳区政府拆除了陈仕梅位于东岸村棚户区改造项目用地征收范围内的房屋。陈仕梅不服该征收行为，向法院提起行政诉讼，请求：一、判决确认三亚市政府征收其位于东岸村土地范围内的家庭住宅之行政行为违法；二、依法审查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个月内向法院提起行政诉讼。同日，三亚市政府办公室对吉阳区政府及市各相关单位作出了270号补偿安置方案,该补偿安置方案规定，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，吉阳区政府指派吉阳区住建局等相关部门的工作人员对陈仕梅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《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，明确了陈仕梅被征收房屋的规格、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。陈仕梅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。2016年8月1日，陈仕梅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，因此甲方同意根据《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778.06平方米（超出525平方米部分不予补偿）给予乙方生活困难补助费288750元（标准为550元/平方米）和搬迁奖励费131250元（标准为250元/平方米），合计420000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，陈仕梅领取了前述协议约定的全部款项。
2016年8月5日，吉阳区政府对陈仕梅被征收的房屋进行了拆除。2017年6月26日，陈仕梅以三亚市政府征收其房屋的行政行为违法，应予赔偿为由，提起行政赔偿诉讼，请求法院判决三亚市政府赔偿其位于东岸村委会土地范围内的778.06平方米家庭住宅被征收的损失778.06万元（按每平方米1万元计，以司法评估为准）及拆除其房屋未能回收的建筑钢筋材料损失6万元。2017年6月27日，陈仕梅另外提起本案诉讼。案件庭审时，陈仕梅明确不再申请对其房屋被征收的损失进行司法评估。
原审另查明，陈仕梅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陈仕梅被征收的涉案房屋进行清点、丈量和登记，并先后制作了《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。陈仕梅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，陈仕梅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，陈仕梅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。因此，三亚市政府征收陈仕梅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。陈仕梅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行政赔偿权利。经查，在陈仕梅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，陈仕梅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，陈仕梅在同意签订《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，现陈仕梅在双方协议已经履行完毕后，又反悔请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，陈仕梅申请调取东岸村棚户区改造项目的相关征收文件、自2000年以来东岸村的土地房屋登记和报建记录以及相关职能部门查处东岸村违建的行政记录材料等证据的申请理由不充分，依法不予准许。
陈仕梅诉求原审法院审查三亚市政府作出的270号补偿安置方案的合法性。鉴于陈仕梅在三亚市政府征收其房屋的过程中，已同意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，其再以涉案房屋权益受到三亚市政府征收行为侵害为由，要求对征收行为所依据的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，三亚市政府征收陈仕梅涉案房屋的行政行为依据充分，程序并无不当。陈仕梅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，判决驳回陈仕梅的诉讼请求。案件受理费50元由陈仕梅负担。
上诉人陈仕梅上诉称，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。2017年8月21日,海南省高级人民法院作出(2017)琼行终762号行政判决,维持三亚市中级人民法院(2016)琼02行初339号行政判决,确认三亚市政府作出的185号征收决定违法。二、三亚市政府征收陈仕梅家庭住宅，未签订协议或作出决定，亦未予以补偿，侵犯公民财产权利。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缺失公共利益。四、陈仕梅在东岸村的房屋未经专业测量、确认面积及评估价值，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、房屋灭失赔偿的责任。五、原审法院在其合并审理本系列案件的裁判中，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包括集体土地的事实。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，陈仕梅的公民住宅及财产权利应得到有效保护。综上，请求：1.撤销原审判决；2.支持陈仕梅的原审诉讼请求。
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。
二审庭审中，陈仕梅向本院提交了两份证据：证据1.本院于2017年8月21作出的（2017）琼行终762号行政判决，拟证明185号征收决定已被确认违法；证据2.三亚市政府办公室于2017年4月5日作出的《关于印发三亚市2017年重点棚改项目推进时间节点表和三亚市2017年计划启动棚改项目推进时间节点表的通知》，拟用推进时间节点表证明三亚市政府实施的涉案项目不属棚户区改造项目。本院认为，证据1是本院于本案原审期间作出的生效判决，所涉185号征收决定亦是陈仕梅本案诉请司法审查的对象，其与本案具有关联性，本院作为新证据予以接纳。证据2是三亚市政府明确该市棚改项目进程的时间安排，与被诉行政行为不具有关联性，本院对该证据不予接纳。
本院经审理查明的事实与原审判决认定的事实一致。在本案审结之前，案外人王某等15人曾向原审法院提起行政诉讼，请求撤销三亚市政府作出的185号征收决定。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。王某等15人不服，向本院提起上诉。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陈仕梅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陈仕梅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，陈仕梅签名予以认可。因此，三亚市政府征收陈仕梅涉案房屋的行政行为事实清楚，程序并无不当。陈仕梅与吉阳区政府及吉阳区住建局签订《房屋拆迁补助协议书》，并领取了全部补助款。因此，陈仕梅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（陈仕梅）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，陈仕梅签订《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，现陈仕梅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。
陈仕梅以房屋未经合法性确认及评估为由，上诉认为其未得到市场价值的补偿。然而，三亚市政府在征收过程中，已按照270号补偿安置方案的规定对陈仕梅的身份及其房屋的性质进行了认定，其在陈仕梅签订《房屋拆迁补助协议书》对补助标准、数额予以确认的情况下，未对房屋价值予以评估，亦无不当。陈仕梅还以185号征收决定已被确认违法为由，上诉主张本案被诉征收行为违法。然而，185号征收决定是对陈仕梅涉案房屋实施征收的依据，虽然被确认为违法，但未被撤销，仍具有法律效力，三亚市政府据此对陈仕梅的房屋实施征收并无不当。而且，三亚市政府对涉案房屋具体实施的征收行为与185号征收决定属两个不同的行政行为，该行政行为如前所述并无违法之处，陈仕梅的上述主张于法无据，本院不予支持。陈仕梅另上诉认为三亚市政府征收涉案项目范围内其他2000多栋房屋的行政行为违法。但是，其他房屋被征收行为与本案被诉行政行为属不同的独立行政行为，不属于本案的审查范围，陈仕梅以此主张被诉行政行为违法，理由不成立。
至于陈仕梅要求对270号补偿安置方案进行合法性审查的问题。因270号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，陈仕梅的该项诉求亦应予以驳回。
综上所述，三亚市政府征收陈仕梅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。陈仕梅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元由上诉人陈仕梅负担。
本判决为终审判决。
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审判长朱望锋
审判员郑怀全
审判员吴天月
审判员麻红丽
审判员陈焱
二○一七年十二月七日
书记员陈欣欣
附：本案适用相关法律条文
《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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