海南省高级人民法院
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（2017）琼行终1249号
上诉人（原审原告）琼海市潭门镇草塘村民委员会草一村民小组。
负责人方菊花，组长。
上诉人（原审原告）琼海市潭门镇草塘村民委员会草二村民小组。
负责人邓丽，组长。
上列两上诉人的共同委托代理人王世春，北京天睿（陵水）律师事务所律师。
被上诉人（原审被告）琼海市人民政府，住所地琼海市嘉积镇兴海北路1号政府办公大楼。
法定代表人符平，市长。
委托代理人冯家川，琼海市国土资源局工作人员。
原审第三人琼海市潭门镇草塘村民委员会草四村民小组。
负责人陈武，组长。
委托代理人许开博，男，汉族，1958年4月20日出生，住琼海市潭门镇福田墟福兴街**号。
委托代理人刘永明，北京市泓理律师事务所律师。
上诉人琼海市潭门镇草塘村民委员会草一村民小组、琼海市潭门镇草塘村民委员会草二村民小组（以下共同简称草一、草二村民小组）因其诉被上诉人琼海市人民政府（以下简称琼海市政府）及原审第三人琼海市潭门镇草塘村民委员会草四村民小组（以下简称草四村民小组）集体土地所有权行政登记一案，不服海南省第一中级人民法院(2017)琼96行初73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，现已审理终结。
本案被诉行政行为：2004年12月29日，琼海市政府给草四村民小组颁发琼海市集有（2004）第004829号《集体土地所有证》（以下简称004829号土地证）。草一、草二村民小组不服，请求撤销该证。
原审查明，2004年琼海市政府根据草四村民小组的申请进行土地确权登记。原琼海市国土环境资源局组织草四村民小组分别与包括草一、草二村民小组在内的土地相邻各方签订《土地权属界限核定书》。琼海市潭门镇人民政府出具《土地权属来源证明书》，证明本宗地来源于带地入社，四至清楚，面积准确，界线无争议。经原琼海市国土环境资源局张贴《农村集体土地确权登记发证公告》，琼海市人民政府审核后，于2004年12月29日给草四村民小组颁发004829号土地证，土地坐落于琼海市××镇委会南侧，土地总面积21.43017公顷，土地四至为：东至国有海洋，南至潭一、潭二村民小组，西至潭一村民小组，北至草三村民小组。
2017年1月4日，琼海市国土资源局作出海国土资回报[2017]3号《关于方菊花等村民反映潭门镇草塘村文化室四周土地权属确权问题的信访事项答复意见书》，内容有：”一、反映主要问题及诉求。你们反映潭门镇草塘村文化室四周土地自古以来属于草塘草一、二、三、四村共有的集体土地，此次龙博滨海大道要扩建征用土地进行补偿，你们草一、草二村才知道该地已2004年全部确权给草三、草四村，其确权结果你们两个村小组坚决不接受，要求市政府解决因土地确权引发的土地纠纷问题。二、调查情况。......经实地调查，你们两个村小组集体主张草塘村文化室四周土地权属的土地，系草三村小组自解放后一直使用至今的土地，上世纪60年代，潭门镇靠海的一些村小组自发成立渔民队，属于村民民间组织，所使用的土地都是借用各生产队的土地。当时你们草一、草二村与草三、草四村等四个村的村民成立草塘村渔民队，借用草三村小组约500平方米集体土地盖瓦房和仓库，上世纪70年代后，各村渔民队陆续解散，所使用土地归还给原借用土地权属单位村集体。草塘村渔民队解散后土地也归还给草三村小组，并由草三村小组集体耕作使用至今。并作出处理意见，（一）潭门镇草塘村文化室四周土地的土地所有权属于草三村民小组集体所有。（二）你们认为市政府颁发的002125号《集体土地所有证》侵害你们村小组的合法权益，可以通过行政复议或行政诉讼途径进行解决”。草一、草二村民小组认为涉案争议地为草塘村文化室四周约42亩土地，应为草一、二、三、四村民小组的共有地，遂提起本案诉讼。
原审另查明，自上世纪60年代起，草一、二、三、四村民小组共同成立渔业队，在涉案争议地上进行过生产活动，上世纪80年代渔业队解散。
原审又查明，2003年至2004年间，潭门镇政府向草四村民小组发放了龙博滨海景观大道征地青苗补偿款，草一、草二村民小组均没有领取记录。
原审认为，本案争议的焦点有：草一、草二村民小组是否本案适格主体，其起诉是否超过起诉期限，琼海市政府的颁证行为是否合法，是否侵害草一、草二村民小组的合法权益。
一、关于草一、草二村民小组是否本案适格主体的问题。根据草一、草二村民小组与草四村民小组、案外人草三村民小组共同成立渔业队，在涉案争议地上进行过生产活动的事实，可以认定草一、草二村民小组与琼海市政府本案的颁证行为有利害关系。根据《中华人民共和行政诉讼法》第二十五条第一款”行政行为的相对人以及其他与行政行为有利害关系的公民、法人或者其他组织，有权提起诉讼”的规定，草一、草二村民小组有权提起本案诉讼。
二、关于草一、草二村民小组的起诉是否超过起诉期限的问题。草一、草二村民小组是因2017年龙博滨海大道扩建征地时，才知道涉案争议地已确权给草四村民小组，并颁发涉案集体土地所有权证；草四村民小组并没有证据证明草一、草二村民小组在2004年时就已经知道琼海市政府作出的涉案颁证行为，因此草四村民小组主张草一、草二村民小组的起诉超过起诉期限没有事实根据，不予采纳。根据最高人民法院《关于执行<中华人民共和国行政诉讼法>若干问题的解释》第四十一条第一款关于”行政机关作出具体行政行为时，未告知公民、法人或者其他组织诉权或者起诉期限的，起诉期限从公民、法人或者其他组织知道或者应当知道诉权或者起诉期限之日起计算，但从知道或者应当知道具体行政行为内容之日起最长不得超过2年”的规定，草一、草二村民小组的起诉没有超过2年的法定起诉期限。
三、关于琼海市政府的颁证行为是否合法，是否侵害草一、草二村民小组的合法权益的问题。琼海市政府作出本案颁证行为有草四村民小组的申请，琼海市潭门镇人民政府出具的土地权属来源证明，并经包括草一、草二村民小组在内的土地相邻方进行土地权属界线核定，原琼海市国土环境资源局对拟准登记土地进行了公告，最后由琼海市政府进行审核、注册登记并颁证，该颁证行为符合法律、法规规定的程序。草一、草二村民小组主张《土地权属界限核定书》上的签名不真实，但并没有提供证据予以证明。庭审中，草一、草二村民小组认可对琼海市政府给草四村民小组颁证范围内土地除争议的涉案地外，对颁证范围内其余土地权属并没有异议。对于涉案的争议地，草一、草二村民小组也没有提出明确的地理坐标位置，准确的面积，仅描述为草塘村文化室四周土地约42亩。草一、草二村民小组提出权属主张的依据是上世纪60年代成立渔业队后，曾在涉案争议地上进行生产活动，但渔业队早已解散。对于渔业队解散后，该涉案争议地是否作为渔业队遗留资产，仍继续由当初成立渔业队的相关各方共同使用，并为相关各方共同享有权属，草一、草二村民小组并没有提交充分的证据予以证明。因此，草一、草二村民小组主张对涉案争议地具有相关权属，缺乏充分的事实根据，不能支持，琼海市政府本案的颁证行为并未侵害草一、草二村民小组的合法权益。
综上，琼海市政府本案的颁证行为事实清楚，证据确凿，适用法律、法规正确，符合法定程序，没有侵害草一、草二村民小组的合法权益。草一、草二村民小组的诉求证据不足，理由不充分，不予支持。依照《中华人民共和国行政诉讼法》第六十九条之规定，判决：驳回草一、草二村民小组的诉讼请求。案件受理费50元，由草一、草二村民小组共同负担。
上诉人草一、草二村民小组上诉称，原审判决认定事实错误。一、草一、草二村民小组没有在《土地权属界限核定书》和《农村地籍调查表》上签名，未参与现场指界。《土地权属界限核定书》上的签名是伪造的。二、涉案争议地自古以来属于草塘村草一、草二、草三、草四村民小组共有。草一、草二村民小组曾在争议地上种有番茨、剑麻等作物，并在上世纪六十年代与草三、草四村民小组共同组成渔民队使用争议土地，后改建文化室，并建公庙。综上，草一、草二村民小组请求：撤销原审判决，撤销004829号土地证。
被上诉人琼海市政府答辩称，原审判决认定事实清楚，适用法律准确。《土地权属界限核定书》上的签名是真实的，诉争土地属于草四村民小组。渔民队解散后，土地归还原生产队（草四村民小组）。
原审第三人草四村民小组述称，同意原审判决。一审提交的证据土地指界补助款收据（现金付出凭单）证明符玉銮、王秋桂都领了土地确认指界补助款，说明她们都去指界了。
二审中，草一、草二村民小组申请对《土地权属界线核定书》上”王秋季”和”许白叶”的签名进行鉴定，因该申请无正当理由未在一审法定举证期限内提出，本院不予准许。
本院二审进行现场勘察，草一、草二村民小组指认争议地四至为：北起草塘村文化室（含文化室）往南约230米处、东起龙博路往西至文化室后墙外约15米处。各方确认该争议地为草三村民小组和草四村民小组土地交界处。文化室及周围广场等设施共占地一亩左右。争议地上有椰子树、木麻黄、养鱼池、房屋等，现为草三、草四村民小组管理使用。
本院二审查明的其他事实与原审判决认定事实一致。
本院认为，本案二审争议焦点为琼海市政府颁证行为是否合法，是否侵害草一、草二村民小组的合法权益。原国家土地管理局《土地登记规则》第六条规定，土地登记依照下列程序进行：（一）土地登记申请；（二）地籍调查；（三）权属审核；（四）注册登记；（五）颁发或者更换土地证书。根据本案查明事实，琼海市政府受理草四村民小组的颁证申请后，依法进行权属审核和地籍调查，组织包括草一、草二村民小组在内的土地相邻方进行土地权属界线核定，发布公告，最后进行审批、注册登记、颁发土地证书，该颁证行为认定事实清楚、程序合法。
草一、草二村民小组主张《土地权属界限核定书》上的签名不真实，但没有提供证据予以证明，其于二审提出的鉴定申请也因无正当理由超过法定举证期限而不被准许，对该主张本院不予认可。草一、草二村民小组还主张上世纪60年代成立渔业队后，四个村民小组曾在涉案争议地上进行共同生产活动，该争议地应为各方共同所有。但渔业队早已于上世纪80年代解散，草一、草二村民小组并未提供证据证明渔业队解散后其对涉案争议地有进行管理使用的事实。至于草一、草二村民小组提出的文化室等设施为共同使用的问题，经本院查明该共同使用部分土地面积仅为一亩多，公用设施于近年才兴建，也无法证明该部分土地为草一、草二村民小组所有，且被诉土地证的颁发也不妨害公共设施的使用。因此，琼海市政府的颁证行为并未侵害草一、草二村民小组的合法权益。
综上，草一、草二村民小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。
二审案件受理费50元，由上诉人琼海市潭门镇草塘村民委员会草一村民小组、琼海市潭门镇草塘村民委员会草二村民小组共同负担。
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
书记员王洪玉
附：本判决适用的相关法律依据
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caseinfo=JSON.stringify({\"文书ID\":\"843ac730-e535-4d41-8c04-8f810c5d554a\",\"案件名称\":\"广东揭东农村商业银行股份有限公司与揭阳市盈通工贸有限公司、王奕鹏、王汉省、王奕飞金融借款合同纠纷一审民事判决书\",\"案号\":\"（2015）揭东法白民初字第67号\",\"审判程序\":\"一审\",\"上传日期\":\"\\\/Date(1454314031000)\\\/\",\"案件类型\":\"2\",\"补正文书\":\"2\",\"法院名称\":\"揭阳市揭东区人民法院\",\"法院ID\":\"2276\",\"法院省份\":\"广东\",\"法院地市\":\"揭阳市\",\"法院区县\":\"揭东区\",\"法院区域\":\"\",\"文书类型\":null,\"文书全文类型\":null,\"裁判日期\":null,\"结案方式\":null,\"效力层级\":null,\"不公开理由\":null,\"DocContent\":\"\",\"文本首部段落原文\":\"\",\"诉讼参与人信息部分原文\":\"\",\"诉讼记录段原文\":\"原告广东揭东农村商业银行股份有限公司诉被告揭阳市盈通工贸有限公司、王奕鹏、王奕飞、王汉省金融借款合同纠纷一案，本院于2015年1月22日立案受理后，依法组成合议庭，于2015年11月19日公开开庭进行了审理。原告广东揭东农村商业银行股份有限公司的委托代理人吴越文、被告揭阳市盈通工贸有限公司、王奕鹏的委托代理人王彬城、林三耿到庭参加诉讼，被告王奕飞、王汉省经本院合法传唤没有正当理由拒不到庭参加诉讼。本案现已审理终结\",\"案件基本情况段原文\":\"\",\"裁判要旨段原文\":\"\",\"判决结果段原文\":\"\",\"附加原文\":\"相关法律条文：\\\u0026#xA;《中华人民共和国合同法》\\\u0026#xA;第九十四条有下列情形之一的，当事人可以解除合同：\\\u0026#xA;（一）因不可抗力致使不能实现合同目的；\\\u0026#xA;（二）在履行期限届满之前，当事人一方明确表示或者以自己的行为表明不履行主要债务；\\\u0026#xA;（三）当事人一方迟延履行主要债务，经催告后在合理期限内仍未履行；\\\u0026#xA;（四）当事人一方迟延履行债务或者有其他违约行为致使不能实现合同目的；\\\u0026#xA;（五）法律规定的其他情形。\\\u0026#xA;第一百零八条当事人一方明确表示或者以自己的行为表明不履行合同义务的，对方可以在履行期限届满之前要求其承担违约责任。\\\u0026#xA;第二百零五条借款人应当按照约定的期限支付利息。对支付利息的期限没有约定或者约定不明确，依照本法第六十一条的规定仍不能确定，借款期间不满一年的，应当在返还借款时一并支付；借款期间一年以上的，应当在每届满一年时支付，剩余期间不满一年的，应当在返还借款时一并支付。\\\u0026#xA;第二百零六条借款人应当按照约定的期限返还借款。对借款期限没有约定或者约定不明确，依照本法第六十一条的规定仍不能确定的，借款人可以随时返还；贷款人可以催告借款人在合理期限内返还。\\\u0026#xA;第二百零七条借款人未按照约定的期限返还借款的，应当按照约定或者国家有关规定支付逾期利息。\\\u0026#xA;《中华人民共和国担保法》\\\u0026#xA;第十八条当事人在保证合同中约定保证人与债务人对债务承担连带责任的，为连带责任保证。\\\u0026#xA;连带责任保证的债务人在主合同规定的债务履行期届满没有履行债务的，债权人可以要求债务人履行债务，也可以要求保证人在其保证范围内承担保证责任。\\\u0026#xA;第二十一条保证担保的范围包括主债权及利息、违约金、损害赔偿金和实现债权的费用。保证合同另有约定的，按照约定。\\\u0026#xA;当事人对保证担保的范围没有约定或者约定不明确的，保证人应当对全部债务承担责任。\\\u0026#xA;《最高人民法院关于使适用〈中华人民共和国担保法〉若干问题的解释》\\\u0026#xA;第十条主合同解除后，担保人对债务人应当承担的民事责任仍应承担担保责任。但是，担保合同另有约定的除外。\\\u0026#xA;《中华人民共和国民事诉讼法》\\\u0026#xA;第一百四十四条被告经传票传唤，无正当理由拒不到庭的，或者未经法庭许可中途退庭的，可以缺席判决\",\"文本尾部原文\":\"\"});$(document).attr(\"title\",\"广东揭东农村商业银行股份有限公司与揭阳市盈通工贸有限公司、王奕鹏、王汉省、王奕飞金融借款合同纠纷一审民事判决书\");$(\"#tdSource\").html(\"广东揭东农村商业银行股份有限公司与揭阳市盈通工贸有限公司、王奕鹏、王汉省、王奕飞金融借款合同纠纷一审民事判决书
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