海南省海口市秀英区人民法院
p t ; ” > 行 政 判 决 书
（2017）琼0105行初61号
原告王基成，男，汉族，1949年12月1日生，住海口市。
委托代理人赵承华，海南阳光岛律师事务所律师。
被告海口市秀英区农林局，住所地海口市秀英区秀华路2号秀英区政府办公楼2楼。
法定代表人余贤兴，局长。
委托代理人李秀峰，海口市秀英区农林局工作人员。
委托代理人钟琴胜，海南维特律师事务所律师。
第三人海口市秀英区石山镇和平村民委员会文风村民小组。
负责人王关伟，组长。
第三人钟真强，男，汉族，1964年12月25日出生，住海口市。
原告王基成因不服被告海口市秀英区农林局（以下简称农林局）于2005年9月1日向第三人钟真强颁发编号为秀英市（县）农地承包权（石山）第0710311号《农村土地承包经营权证》（以下简称承包证）的行政行为，于2017年5月25日向本院提起行政诉讼，本院于同年5月27日立案受理，并于2017年6月5日向被告送达起诉书副本和应诉通知书。在审理过程中，被告于2017年6月16日以案件材料繁复为由，向本院申请延期举证，本院予以照准。由于本案的处理结果与钟真强有法律上的利害关系，本院依法追加钟真强作为第三人参加诉讼。本院适用简易程序，于2017年7月4日公开开庭审理了本案，原告王基成、委托代理人赵承华，被告委托代理人李秀峰、钟琴胜，第三人钟真强到庭参加诉讼。第三人海口市秀英区石山镇和平村民委员会文风村民小组（以下简称文风村民小组）经本院合法传唤，无正当理由没有到庭，不影响案件的审理。本案现已审理终结。
被告农林局于2005年9月1日向第三人钟真强颁发承包证，同意将住海口市XX区地块名称为”美忙”，面积为0.84亩，四至范围为东至振长，南至基建，西至明山，北至传典的土地交由第三人钟真强承包经营。被告于2017年6月26日向本院提交答辩状，并提供了其作出具体行政行为的证据：1、文风村民小组出具的琼山市农业承包合同书、耕地登记表，证明文风村民小组依法对第三人的承包经营权证进行了登记备案。2、石山镇人民政府出具的海南省农村土地承包经营权证登记表，证明石山镇人民政府依法对第三人的承包经营权进行了登记备案。3、农林局出具的海南省农村土地承包经营权证登记表，证明农林局依法对第三人的承包经营权进行了登记备案。4、海南省家庭耕地承包合同书，证明第三人与文风村民小组签订的承包合同。
原告王基成诉称，1998年1月1日，海口市秀英区石山镇和平村委会文山村进行土地发包后，发现很多土地有历史遗留问题没解决。同年，羊山地区根据客观实际情况而形成的约定俗成：村民间可以进行土地互换，要回自己的祖宗地进行耕种。2005年9月1日，被告农林局未经海口市秀英区人民政府的核准，将原先属于原告王基成的祖宗地，通过颁发承包证的方式给第三人钟真强确权，侵犯了原告的合法权益。基于上述事实，原告认为：确权行为属于县级以上人民政府的行为，被告农林局却给第三人钟真强进行土地确权，属于行政越权行为，其所颁发的承包证亦属无效。根据《中华人民共和国行政诉讼法》、《中华人民共和国农村土地承包法》、《中华人民共和国物权法》等相关法律的规定，依法向法院提起行政诉讼，请求：1、依法确认被告给第三人颁发承包证的行为违法，并撤销该行为；2、依法确认被告给第三人颁发的承包证无效。
原告向本院提交了以下证据：1、土地承包经营权证，2、注意事项；证据1-2证明（1）农林局未经区政府同意盖章就擅自越权把承包证颁发给第三人，属于越权违法的行政行为；（2）承包证上没有秀英区政府的盖章，该证应属无效证书。3、证人证言，4、证明；证明（1）涉案土地属于王基成的祖宗地，（2）该土地从1998年土地回老家后就一直由王基成耕种，已经20多年，第三人从来没有主张过权利，一直认可村民之间土地互换的行为，各自拿回自己的祖宗地进行耕种，包括第三人也把别人承包的土地拿回来耕种；互换土地的行为对彼此双方是有效的，有约束力的，证明了第三点内容；农林局不顾客观事实，违法越权给第三人颁发承包证的程序是违法的。
在庭审过程中，原告申请证人陈某（系原告的妻弟）出庭作证，证明原告自1998年起就在涉案土地上耕种管理使用至今。
被告农林局辨称，原告的诉讼请求缺乏相应的事实和法律依据，应当予以驳回。
一、原告的理由是被告将原告的”祖宗地”确权给第三人，被告颁发承包证的行为是越权行为，侵犯原告的合法权益，应当予以撤销。被告认为原告的诉讼请求缺乏相应的事实和法律依据：
1、被告的具体行政行为并非确权行为，而是农村土地承包经营权证的备案、登记、发放行为。根据《中华人民共和国农村土地承包经营权证管理办法》第四条，被告作为县级以上地方人民政府农业行政主管部门，负责农村土地承包经营权证的备案、登记、发放等具体工作，被告的具体行政行为合法。
2、《海南省实施<中华人民共和国农村土地承包法>办法》规定，禁止以”祖宗地”名义占用农村集体经济组织的土地或者侵占他人依法承包的土地。因此，原告以”祖宗地”为由侵占他人土地违法。
二、被告为第三人颁发承包证书程序合法，适用法律正确。
1、被告依据《中华人民共和国农村土地承包经营权证管理办法》的规定，依照法定程序为第三人颁发承包证，程序合法，并无不当。
2、被告依据第三人与村集体签订的承包合同，经村、镇报送相关材料并核实后，录入农村土地经营权证管理系统，依法为第三人换发土地承包经营权证书，适用法律正确，故原告诉请撤销，没有事实及法律依据。
综上所述，被告作出的具体行政行为证据确凿，适用法律法规正确，程序合法。原告起诉理由缺乏依据，依法不能成立。根据《行政诉讼法》第六十九条的规定，请求法院依法驳回原告的诉讼请求。
第三人钟真强述称，第三人的承包证依法取得，合法有效，原告的诉讼请求无法律和事实依据，理由如下：
《中华人民共和国农村土地承包法》第十九条规定，土地承包应当按照以下程序进行：(一)本集体经济组织成员的村民会议选举产生承包工作小组;(二)承包工作小组依照法律、法规的规定拟订并公布承包方案;(三)依法召开本集体经济组织成员的村民会议，讨论通过承包方案;(四)公开组织实施承包方案;(五)签订承包合同。第二十二条规定，承包合同自成立之日起生效，承包方自承包合同生效时取得土地承包经营权。第三人承包经营的土地位于文风村民小组，该地在1953年以来就由原告的家人耕作。实行家庭联产承包责任制后第三人一家仍继续承包该地种田。第二轮承包中第三人依法与文风村民小组签订《海南省家庭承包耕地合同书》。根据以上法律规定，自该合同成立生效之日起第三人就已经取得了相关土地的承包经营权，被告所颁发的承包证只不过是对第三人承包经营权的确认。
《海南省实施<中华人民共和国农村土地承包法>办法》规定，禁止以”祖宗地”名义占用农村集体经济组织的土地或者侵占他人依法承包的土地。原告以第三人承包的土地是其”祖宗地”为由，要求撤销第三人的承包证违法。原告没有按照《中华人民共和国农村土地承包法》的相关规定，与村集体签订《海南省家庭承包耕地合同书》，其诉讼请求没有任何事实依据和法律依据，依法应当予以驳回。
第三人向本院提交以下证据：1、琼山市农业承包合同书、承包耕地登记表；证明第三人的承包合同在文风村民小组备案。2、农村土地承包经营权证，证明政府颁发给第三人的承包证。3、海南省家庭承包耕地合同书，证明第三人与文风村民小组签订合法有效的承包合同。4、土地房产所有权证，证明第三人家庭自土改时就享有土地所有权。5、和平村委会2016年农业支持保护补贴公示表，证明第三人获取政府的农业补贴。
第三人文风村民小组没有书面意见，也没有证据提交。
经审理查明，本案涉案土地位于海口市XX区，地块名称为”美忙”，面积为0.84亩，四至范围为东至振长，南至基建，西至明山，北至传典。1953年，原琼山县人民政府向第三人的家人颁发《土地房屋所有证》，其中就有名称为”美忙”的土地。1997年10月1日，原琼山县石山镇和平村委会文风经济合作社与第三人签订《农业承包合同书》和《海南省家庭承包耕地合同书》，将涉案土地交由第三人承包经营管理，同时明确承包经营期限及第三人按时上缴粮食和承包金的数额。2005年9月1日，被告根据第三人的申请及村、镇上报的材料，经审核后将第三人的承包土地信息录入农村土地经营权证管理系统，并向第三人重新换发了本案被诉的证号为第0710311号承包证，承包期限自1998年1月1日起至2027年12月31日止。但该承包证只有填表机关即被告农林局的印章，没有发证机关即海口市秀英区人民政府加盖的印章。2016年，第三人领取了涉案土地的农业支持保护补贴。
涉案土地现由原告在耕种管理使用，原告认为涉案土地为其”祖宗地”，对被告将其”祖宗地”承包发证至第三人名下，侵犯其权益的行为不服，遂向本院提起行政诉讼。
以上事实，有被告提交的文风村民小组出具的琼山市农业承包合同书、耕地登记表，石山镇人民政府出具的海南省农村土地承包经营权证登记表，海南省农村土地承包经营权证登记表，海南省家庭耕地承包合同书；第三人提交的土地房产所有权证，和平村委会2016年农业支持保护补贴公示表以及庭审质证笔录，足以认定。
本院认为，本案当事人争议的焦点是被告农林局向第三人钟真强颁发承包证的行政行为是否合法。经庭审质证后确认，首先，根据第三人提供的1953年由原琼山县人民政府颁发的《土地房屋所有证》，可以证明在当时涉案土地就由第三人的家人在管理使用。该证可以作为土地合法来源的依据。其次，第三人在1997年就与当时的村集体签订耕地承包合同，按时上缴粮食和承包金，并领取由国家发放的各种农业补贴。被告在第三人原签订的耕地承包合同的基础上，依据我国农村土地承包经营权证管理办法的规定和第三人的申请及村、镇上报的材料，经法定程序审核后重新向第三人颁发本案被诉的证号为第0710311号承包证的行政行为并无不当。第三，根据现有证据，不能证明涉案土地属原告”祖宗地”或是长期由原告管理使用。对原告提出的承包证上没有发证机关盖章应认定无效的理由；本院认为，本案被告的颁证行为，是对第三人土地承包行为的确认，不是土地确权。被告作为当地县级地方农业行政主管部门，负责本地区土地承包证的备案、登记、发放等工作。承包证上没有加盖当地人民政府作为发证机关的印章，应属被告工作失误，颁证程序存在瑕疵，但不能据此否定承包证的效力以及该颁证行为的合法性。综上，被告的辩解理由成立，本院予以采纳；原告起诉的理由与事实不符，且于法无据，本院不予支持，依法应予驳回。根据《中华人民共和国行政诉讼法》第六十九条之规定，判决如下：
驳回原告王基成的诉讼请求。
本案诉讼费人民币50元，由原告王基成共同负担。
如不服本判决，可以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或者代表人的人数提出副本，上诉于海口市中级人民法院。
审判员李会勤
二0一七年七月五日
法官助理张一晨
书记员战洋洋
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