海南省高级人民法院
p t ; ” > 行 政 判 决 书
(2017)琼行终1751号
上诉人（原审原告）三亚市吉阳区荔枝沟社区居委会市仔第二居民小组。
负责人李国亮，组长。
委托代理人李谨文，海南三和元律师事务所律师。
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。
法定代表人阿东，市长。
委托代理人黄广明，三亚市法制办公室工作人员。
原审第三人三亚熙泰科技实业有限公司（原名称海南衍黄房地产开发有限公司），住所地海南省三亚市天涯区解放路899号。
法定代表人黄茜蓉，总经理。
委托代理人郭钦浩，三亚熙泰科技实业有限公司总经理助理。
原审第三人黄斌，男，1958年3月25日生，住四川省双流县。
原审第三人三亚滨海实业发展有限公司，住所地海南省三亚市南边海路58号。
法定代表人陈衍彬，总经理。
上诉人三亚市吉阳区荔枝沟社区居委会市仔第二居民小组（以下简称市仔二组）因其诉被上诉人三亚市人民政府（以下简称三亚市政府）及原审第三人三亚熙泰科技实业有限公司（以下简称熙泰公司）、黄斌、三亚滨海实业发展有限公司（以下简称滨海公司）土地房屋行政登记一案，不服海南省三亚市中级人民法院（2016）琼02行初338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。黄斌经本院依法公告传唤，未参加诉讼。本案现已审理终结。
2007年6月，三亚市政府对滨海公司6651.62平方米土地使用权进行初始确权登记，并为其颁发三土房（2007）字第4016号《土地房屋权证》（以下简称4016号权证）；2007年12月，三亚市政府将4016号权证项下土地进行变更登记，并为黄斌颁发三土房（2007）字第9000号《土地房屋权证》（以下简称9000号权证）；2012年6月，三亚市政府将9000号权证项下土地进行变更登记，并为熙泰公司颁发三土房（2012）字第004917号《土地房屋权证》（以下简称004917号权证）。市仔二组不服上述登记行为，于2016年5月5日向原审法院提起行政诉讼，请求：1.确认三亚市政府颁发4016号权证的行政行为违法；2.确认三亚市政府颁发9000号权证的行政行为违法；3.撤销三亚市政府颁发的004917号权证。
原审查明，1992年10月20日，三亚市荔枝沟镇人民政府、三亚市荔枝沟镇荔枝沟管理区与滨海公司签订《同意征用土地协议书》，在该协议书上，市仔二组原队长吴海育、出纳李志雄、会计李学文作为市仔二组代表均签字确认。1993年4月2日，就征收荔枝沟河东侧30亩集体土地事宜，征收实施单位三亚市国土局与被征土地集体原三亚市荔枝沟镇荔枝沟管区及用地单位滨海公司签订了《征（拨）土地协议书》。同年4月22日，三亚市政府作出市府函[1993]61号《关于同意征用荔枝沟区荔枝沟河东侧部分土地出让给三亚市滨海实业发展公司使用的批复》（以下简称61号批复），同意将该土地出让给滨海公司使用。同日，市国土局与滨海公司签订了《国有土地使用权出让合同》。同年5月6日，市国土局向滨海公司颁发了[1993]地（证）字第44号《建设用地许可证》（以下简称44号许可证）。2007年1月，滨海公司向市政府申请将其取得的30亩土地中的10亩土地办理土地初始登记。三亚市政府经过地籍调查、现场勘测和登记公告等程序，并依据61号批复和44号许可证，向滨海公司颁发了4016号权证。后三亚市政府于2007年12月20日，根据原审法院（2006）三亚执字第33-1、33-2、33-3裁定及协助执行通知书，将4016号权证项下的土地过户到黄斌的名下，并为其颁发9000号权证。后又根据三亚市城郊人民法院（2011）城执字第1542-4号裁定及协助执行通知书，将9000号权证项下土地过户到熙泰公司名下，并于2012年6月为其颁发的004917号权证。
原审认为，1992年10月20日，三亚市荔枝沟镇人民政府、三亚市荔枝沟镇荔枝沟管理区与滨海公司签订《同意征用土地协议书》，在该协议书上，市仔二组原队长吴海育、出纳李志雄、会计李学文作为市仔二组代表均签字确认。1993年4月2日，征收机关三亚市国土局经与被征土地集体原荔枝沟镇荔枝沟管理区、用地单位滨海公司签订《征（拨）土地协议书》，依法对以上集体土地实施征收并出让给滨海公司。滨海公司在缴纳相应的土地出让金及征收费用后，作为国有土地使用权人，有权申请将土地使用权登记在自已名下。2007年1月，滨海公司向市政府提出将其取得的30亩�地中的10亩土地办理土地初始登记申请。三亚市政府受理后，经过地籍调查、现场勘测和登记公告等程序，并依据61号批复和44号许可证，向滨海公司颁发了4016号权证，其颁证行为并无不当。故市仔二组提出确认三亚市政府颁发了4016号权证行政行为违法的诉讼请求，没有事实和法律依据，依法不予支持。因三亚市政府后颁发的9000号权证、004917号权证的行为，均依据原审法院（2006）三亚执字第33-1、33-2、33-3号裁定及协助执行通知书、三亚市城郊人民法院（2011）城执字第1542-4号裁定及协助执行通知书实施的行为，是行政机关必须履行的法定协助义务。依据《最高人民法院关于行政机关根据法院的协助执行通知书实施的行政行为是否属于人民法院行政诉讼受案范围的批复》之规定，本案三亚市政府颁发9000号权证、004917号权证的行为，系根据人民法院的协助执行通知书实施的行为，是行政机关必须履行的法定协助义务，不属于人民法院行政诉讼受案范围。至于三亚市政府对市仔二组请求确认三亚市政府颁发004917号权证行政行为违法提出的：一、不属于人民法院行政诉讼受案范围的主张。因三亚市政府颁发4016号权证行政行为，是对滨海公司提出办理土地初始登记申请而实施的行为，而非根据人民法院的协助执行通知书实施的行为。依《最高人民法院关于审理涉及农村集体土地行政案件若干问题的规定》第一条之规定，属于人民法院行政诉讼的受案范围。二、超过法定起诉期限及重复起诉的主张。三亚市政府颁发4016号权证的时间为2007年6月，虽然市仔二组曾于2013年2月就三亚市政府颁发9000号权证行政行为提起过诉讼，但三亚市政府并未提供证据证明市仔二组在起诉时已知晓4016号权证的内容，故依《中华人民共和国行政诉讼法》第四�六条第二款之规定，起诉期限适用二十年的规定。市仔二组于2016年5月提起诉讼，未超过法定起诉期限。又因市仔二组可对初始登记行为和后续转移登记行为一并提起诉讼，故市仔二组在撤回对9000号权证行政行为的起诉后，再对三亚市政府颁发4016号权证行政行为起诉时，一并对三亚市政府颁发9000号权证行政行为提起诉讼，不属重复起诉。
综上，三亚市政府颁发4016号权证的行政行为证据确凿，适用法律、法规正确，符合法定程序，市仔二组请求确认三亚市政府颁发4016号权证行政行为违法的诉讼请求，没有事实和法律依�，依法不予支持。三亚市政府颁发9000号权证、004917号权证的行为，系根据人民法院的协助执行通知书实施的行为，是行政机关必须履行的法定协助义务，不属于人民法院行政诉讼受案范围。故市仔二组请求确认三亚市政府颁发9000号权证行为违法及撤销三亚市政府颁发004917号权证行为的诉讼请求，依法也不予以支持。依照《中华人民共和国行政诉讼法》第六十九条之规定，判决：驳回市仔二组三的诉讼请求。案件受理费50元，由市仔二组负担。
上诉人市仔二组上诉称，原审判决认定事实不清，适用法律错误。一、三亚市政府为滨海公司颁发4016号权证无合法依据。61号批复第五条规定”用地单位在接到批复之日起30天内到市国土局办理交款等有关手续，逾期批复文件自行作废。”原审判决未查明滨海公司是否按照批复规定期限办理交款等手续及是否缴纳了土地出让金、征地补偿款等费用；三亚市政府及滨海公司也未提供相关证据对此予以证实。三亚市政府对其行政行为的合法性负有举证义务，如其不能举证证明滨海公司按期办理了交款等有关手续，则应认定61号批复已作废，4016号权证无合法颁证依据。二、三亚市政府为滨海公司颁发4016号权证程序错误。原审判决未查明颁发4016号权证前，三亚市政府是否告知市仔二组、是否通知其到场指界及是否公示。三亚市政府未能举证证明其已履行告知、通知及公示义务，且征用涉案土地高达30亩，三亚市政府未能提交�关批准手续，颁证程序违法。三、《同意征用土地协议书》主体错误，涉案土地是市仔二组集体土地，三亚市荔枝沟镇荔枝沟管理区无权代表市仔二组签订协议书，且村民未收到任何补偿。四、因4016号权证违法，则其后换发的9000号权证、004917号权证亦应不具有合法性。综上，请求：1.撤销原审判决；2.支持其原审诉讼请求。
被上诉人三亚市政府答辩称，一、市仔二组的上诉理由均系基于征地行为所产生的异议，而本案审理的是颁证行为，与征地行为是两个不同的行政行为，不能混为一谈。如市仔二组对征地行为有异议，其应对征地行为提起诉讼，而征地行为发生在1993年，现已超过起诉期限。二、关于滨海公司是否缴纳出让金等费用，亦属征地行为，且系滨海公司与三亚市政府的关系，与市仔二组无关。因为自《同意征用土地协议书》及61号批复之后，涉案土地已不属于市仔二组。从三亚市政府给滨海公司颁发44号许可证及土地出让合同可以验证，滨海公司已依法缴纳了土地出让金等相关费用及滨海公司取得涉案土地的事实。三、4016号权证系依据61号批复、44号许可证、（2006）三亚执字第33-3裁定及协助执行通知书颁发，程序合法。从4016号权证的宗地图来看，土地四至均不涉及市仔二组，市仔二组不是土地相邻人，三亚市政府没有通知其参加指界的义务。四、9000号权证、004917号权证均基于4016号权证变更而来，且系三亚市政府履行法院协助执行的行为，不具有可诉性。综上，本案�驳回上诉，维持原判。
原审第三人熙泰公司陈述称，004917号权证合法有效，该证宗地图四至均与市仔二组无关，三亚市政府无须告知市仔二组参与指界。《同意征用土地协议书》及土地出让合同均证实市仔二组早已知道征地行为，其诉讼已超过起诉期限。原审庭审中，市仔二组认可收到30亩地的36740元的土地补偿款。因此，请驳回上诉，维持原判。
原审第三人滨海公司陈述称，认可三亚市政府及熙泰公司的答辩意见。
二审中，滨海公司向本院提交（2017）琼民终156号生效民事判决，市仔二组为该案上诉人（原审原告），滨海公司为该案被上诉人（原审被告）之一，该案所涉标的为市仔二组被征收30亩集体土地中剩余的20亩土地。该判决载明：一审庭审中，市仔二组认可已经收到《用地缴款通知书》中列明的36740元土地征用补偿款。经本院核查，该数额与《征（拨）土地协议书》中全部土地补�费的总计数额相符。根据《最高人民法院关于行政诉讼证据若干问题的规定》第七十条的规定，生效的人民法院裁判文书或者仲裁机构裁决文书确认的事实，可以作为定案依据。因此，根据上述生效判决确认的事实，市仔二组已收到涉案土地征用补偿款。
本院查明的其他事实与原审判决认定事实一致。
本院认为，本案争议焦点为三亚市政府颁发4016号权证、9000号权证、004917号权证的行政行为是否合法。根据本案查明事实，4016号权证的土地权属来源为征收和出让。三亚市政府提供的相关证据有《同意征用土地协议书》、《征（拨）土地协议书》、61号批复、44号许可证及市国土局与滨海公司签订的《国有土地使用权出让合同》。根据（2017）琼民终156号生效民事判决的查明事实，市仔二组已收到涉案土地的土地征用补偿款。对以上证据证明的事实，市仔二组未能提供充分有效的证据予以反驳。因此，三亚市政府颁发4016号权证的土地权属来源合法，颁证事实清楚。在程序上，2007年1月，滨海公司就本案10亩土地向市政府提出土地初始登记申请。三亚市政府受理后，经过地籍调查、现场勘测和登记公告等程序，向滨海公司颁发了4016号权证，�颁证程序并无不当。市仔二组主张，三亚市政府颁发4016号权证未通知其指界违法。但根据该证宗地图，土地四至均不涉及市仔二组，市仔二组不是土地相邻人，三亚市政府没有通知其参加指界的义务。9000号权证、004917号权证均基于4016号权证变更而来，因此颁证行为亦无不当，且该两权证系三亚市政府履行协助法院执行义务的结果，不属于法院受案范围。故市仔二组提出确认三亚市政府颁发4016号权证、9000号权证、004917号权证行政行为违法的请求，没有事实和法律依据，原审判决依法不予支持并无不当。
综上，市仔二组的上诉请求缺乏事实根据和法律依据，依法应予驳回。原审判决认定事实清楚，适用法律正确，判决结果并无不当，依法应予维持。依照《中华人民共和国行政诉讼法》第八十九条第一款第（一）项的规定，判决如下：
驳回上诉，维持原判决。
二审案件受理费50元，由上诉人三亚市吉阳区荔枝沟社区居委会市仔第二居民小组负担。
本判决为终审判决。
审判长麻红丽
审判员郑怀全
审判员黄胜敏
二○一八年二月二十七日
书记员王洪玉
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；
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