海南省高级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼行终1666号
海南省高级人民法院
行政裁定书
（2017）琼行终1666号
上诉人（原审第三人）秦方梅，女，1961年4月17日出生，汉族，住定安县。
委托代理人卓裕，男，1957年8月10日出生，汉族，住定安县,系秦方梅的丈夫。
被上诉人（原审原告）龙借喜，女，1957年6月12日出生，汉族，住定安县。
委托代理人林欣静，定安县定城法律事务所法律工作者。
被上诉人（原审被告）定安县人民政府，住所地定安县塔岭兴安大道行政办公大楼。
法定代表人刘蔚，县长。
委托代理人何跃华，定安县法制办干部。
委托代理人莫录总，定安县林业局干部。
上诉人秦方梅因被上诉人龙借喜诉被上诉人定安县人民政府（以下简称定安县政府）林权行政登记一案，不服海南省第一中级人民法院（2017）琼96行初96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。本案现已审理终结。
2011年3月20日，定安县政府向秦方梅颁发定府林证字（2011）第001522号《林权证》（以下简称第001522号《林权证》），将位于××县委会沐塘二下经济社范围内东至坎、南至龙仕焕荔枝地、西至双磅、北至坎，面积为2.54亩的林地所有权人登记为沐塘村委会，林地使用权人及地上200株荔枝的所有权人、使用权人登记为秦方梅。龙借喜不服，提起行政诉讼，请求撤销该颁证行为。
原审查明，涉案土地位于××县委会二下经济社，面积2.54亩，属沐塘村委会集体土地。1988年，龙借喜的家公卓德林与秦方梅因争执涉案土地上的林木而就涉案土地发生权属争议，沐塘大队（现为沐塘村委会）调处未果。上世纪九十年代，龙借喜家在涉案土地上种植100多株槟榔、粽叶并筑起篱笆将涉案土地圈起。2009年3月29日，翰林镇人民调解委员会对两家长期存在的土地权属争议作出《沐塘村委会秦方梅、卓德林争执乾东垦调处意见书》（以下简称《调处意见书》）：1.乾东垦属于集体土地，使用权属于秦方梅；2.秦方梅要向集体补签承包合同，才能得到法律保护；3.如对调处意见有异议，须在15日内向人民法院提起诉讼。2009年7月7日，翰林镇人民政府（以下简称翰林镇政府）受定安县林业局的委托，召集秦方梅、涉案土地的相邻人龙仕焕和沐塘村委会二下经济社代表、沐塘村委会代表对涉案土地及地上林木进行林权勘界。2009年8月25日，秦方梅就涉案土地与沐塘村委会签订《定安县集体林地家庭承包合同》（以下简称《承包合同》），承包期限从2009年8月25日始至2039年8月25日止。同年9月9日，秦方梅依据《承包合同》和林权勘界情况，填写《林权登记申请表》。经沐塘村委会、翰林镇政府、定安县林业局审批，2011年3月20日，定安县政府向秦方梅颁发第001522号《林权证》。2015年10月19日，秦方梅以其持有第001522号《林权证》为由，向定安县人民法院提起排除妨害纠纷诉讼。定安县人民法院判决龙借喜自行清除并强制执行。因龙借喜提起行政诉讼，强制执行终结。尔后，龙借喜以其应先通过民事诉讼确认沐塘村委会与秦方梅签订的《承包合同》无效为由，申请撤诉并得到法院准许。2017年1月，龙借喜向定安县法院提起请求确认秦方梅与沐塘村委会签订的《承包合同》无效的民事诉讼，定安县人民法院判决驳回龙借喜的诉讼请求；二审判决驳回上诉，维持原判。龙借喜再次提起行政诉讼，请求撤销本案被诉的颁证行为。
原审认为，一、关于龙借喜撤回对定安县政府向秦方梅颁发第001522号《林权证》的行为的起诉后又对该颁证行为提起诉讼是否有正当理由的问题。龙借喜曾于2016年8月8日对定安县政府向秦方梅颁发第001522号《林权证》的行为提起行政诉讼，又以应先通过民事诉讼确认沐塘村委会与秦方梅签订的《承包合同》无效为由，申请撤回起诉并得到法院准许。尔后，龙借喜于2017年1月提起民事诉讼，请求确认上述《承包合同》无效，但其诉讼请求被生效民事判决驳回。故其又于2017年6月20日对定安县政府向秦方梅颁发第001522号《林权证》的行为提起行政诉讼，当属有正当理由，不属于《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》第三条规定的”撤回起诉后无正当理由再行起诉”的情形。二、关于定安县政府向秦方梅颁发第001522号《林权证》的行为是否合法的问题。《林木和林地权属登记管理办法》第十一条规定：”对经审查符合下列全部条件的登记申请，登记机关应当自受理申请之日起3个月内予以登记：（一）申请登记的森林、林木和林地位置、四至界限、林种、面积或者株数等数据准确；（二）林权证明材料合法有效；（三）无权属争议；（四）附图中标明的界桩、明显地物标志与实地相符合。”龙借喜家与秦方梅家曾于1988年就涉案土地及地上的林木发生权属争议，但双方的权属争议一直未经有权机关作出确权处理。虽然翰林镇人民调解委员会作出《调处意见书》，认为涉案土地使用权属秦方梅，但根据《中华人民共和国森林法》第十七条的规定，翰林镇人民调解委员会并非有权对土地、林木权属争议依法作出处理的机关，该《调处意见书》不能作为认定翰林镇政府或定安县政府已对双方的土地、林木权属争议作出处理的依据。由此可见，截至定安县政府向秦方梅颁发第001522号《林权证》前，双方对涉案土地及地上林木的权属仍一直存在争议。定安县政府在龙借喜与秦方梅对涉案土地及地上林木权属存在争议且争议未得到解决的情况下就向秦方梅颁发第001522号《林权证》，违反了《林木和林地权属登记管理办法》第十一条的规定。而且，颁证之前，涉案土地上存在着龙借喜于上世纪九十年代种植的100多株槟榔，但定安县政府在颁证时仅仅对涉案土地上的荔枝进行登记。而定安县政府未对涉案土地上的100多株槟榔进行登记，归根结底仍然是由于双方的土地权属争议未得到彻底解决，故定安县政府的林权登记行为认定事实不清。此外，定安县政府受理秦方梅就涉案土地及地上林木提出的林权登记申请后，未在涉案土地所在的沐塘村委会二下经济社进行公告，剥夺了龙借喜作为涉案土地争议一方的知情权和申辩权，违反了《林木和林地权属登记管理办法》第十条”登记机关对已经受理的登记申请，应当自受理之日起10个工作日内，在森林、林木和林地所在地进行公告。公告期为30天”的规定，故定安县政府向秦方梅颁发第001522号《林权证》程序违法。定安县政府在庭审中称其受理秦方梅的申请后，已在沐塘村委会二下经济社进行公告，但其未就该主张提供任何有效的书面证据予以证实，对定安县政府的该主张不予采纳。综上，定安县政府向秦方梅颁发第001522号《林权证》，认定事实不清，违反法定程序，该颁证行为依法应予撤销。依照《中华人民共和国行政诉讼法》第七十条第（一）、（三）项之规定，判决撤销定安县政府向秦方梅颁发第001522号《林权证》的行政行为。案件受理费50元，由定安县政府负担。
上诉人秦方梅上诉称，一、原审判决认定事实不清、证据不足、适用法律不当。秦方梅一家从解放前一直管理使用”权东垦”地，1988年下半年，龙借喜一家强行对涉案地进行破坏，经村委会调查核实确认”权东垦”地属于秦方梅使用。1993年龙借喜强行在地上种植槟榔，2004年-2008年，持续发生侵权情况。2009年3月29日，翰林镇人民调解委员会对两家长期存在的土地权属争议作出《调处意见书》。2009年7月，秦方梅根据定安县林业局的通知要求申请办理林权证，经过村委会、镇政府、林业局等部门核实，并进行土地勘界、公告等程序，定安县政府颁证确认林木所有权。龙借喜强占土地种植的槟榔未登记在内，是因为违法种植的槟榔不属于秦方梅，其未予申请，不是原审法院认定的存在土地争议不登记的情形。二、龙借喜在第一次提起行政诉讼撤诉后，在没有新证据的情况下又另行提起行政诉讼，原审法院就同一诉讼行为应该裁定不予受理才符合法律规定。综上，请求撤销原审判决，驳回龙借喜的起诉。
被上诉人龙借喜答辩称，一、原审法院认定事实清楚,证据充分,适用法律正确。（一）原审法院认定龙借喜九十年代在涉案地上种植农作物并建造篱笆圈起，秦方梅对此并无异议。（二）定安县政府在双方对涉案土地有权属争议未经有权机关作出处理决定的情况下就给秦方梅颁证，违反了《林木和林地权属登记管理办法》第十一条规定。定安县政府在龙借喜使用涉案地期间，委托翰林镇政府未经合法程序通知龙借喜核实，未进行实地测量和调查核实，未进行公告，龙借喜对土地承包及办理林权使用权证事项从不知悉。（三）定安县政府颁发的第001522号《林权证》，仅是对涉案土地上的荔枝登记，而未对100多株槟榔登记，登记内容与实际不符。二、龙借喜之前撤回对定安县政府给秦方梅颁发第001522号《林权证》的行政诉讼后又对该颁证行为提起诉讼，是对法律程序的错误理解，误认为应当先提起民事诉讼确认沐塘村委会与秦方梅签订的《承包合同》无效。龙借喜提起本案诉讼不属于”撤回起诉后无正当理由再行起诉”的情形。综上，请求驳回上诉，维持原判。
被上诉人定安县政府答辩称，一、定安县政府给秦方梅颁发第001522号《林权证》认定事实清楚。2009年3月29日，因秦方梅与龙借喜的家公卓德林就涉案土地发生争议，翰林镇人民调解委员会因此召集双方进行调解，并出具《调处意见书》。2009年8月25日，秦方梅与沐塘村委会签订《承包合同》，地名权（乾，海南话谐音）东垦，该地东至坎、南至龙仕焕荔枝地、西至双磅、北至坎，面积2.54亩，承包年限自2009年8月25日始至2039年8月25日止。同年9月，沐塘村委会、翰林镇政府经审核认为，秦方梅承包涉案土地且在涉案土地上主要种植了荔枝树属实。因此，定安县政府根据秦方梅的申请以及村委会、镇政府的审核意见为其颁证。二、颁发第001522号《林权证》符合《中华人民共和国森林法》第三条和《中华人民共和国森林法实施条例》第五条的规定。三、颁发第001522号《林权证》程序合法。受定安县林业局委托，翰林镇政府向秦方梅送达《林权勘界通知书》，要求其于2009年7月7日前往权东垦进行林权勘界。经现场实地勘查，沐塘村委会二下经济社的代表、沐塘村委会的代表、秦方梅及涉案土地的相邻方均在《林地权属勘界测量表》签名捺手印，确认涉案土地的界限以及秦方梅在涉案土地上种植荔枝树属实。根据《林木和林地权属登记管理办法》第五条的规定，秦方梅提交了登记办证所需的相关材料。定安县林业局受理并依法审核后，将秦方梅申请办理林权证的相关材料上报定安县政府批准颁证。综上，请求撤销原审判决，驳回龙借喜的诉讼请求。
在本案审理过程中，上诉人秦方梅向本院提交《地契》《林权登记公告》，证明其对涉案林地拥有权属，第001522号《林权证》在颁发之前依法进行了公告。本院认为，上述证据材料上诉人在第一审程序中无正当事由未提供而在第二审程序中提供，依据《最高人民法院关于行政诉讼证据若干问题的规定》第七条第二款之规定，本院不予接纳。
二审审理查明，一、2016年8月8日，龙借喜向原审法院提起行政诉讼，请求撤销本案被诉的颁证行为。开庭审理后，2016年9月29日，龙借喜以需要另行提起民事诉讼、无必要继续进行行政诉讼为由提出撤诉申请，原审法院经审查，作出（2016）琼96行初176号行政裁定书，准许龙借喜撤回起诉。2017年6月14日，龙借喜再次提起行政诉讼，请求撤销本案被诉的颁证行为。经查，两份起诉状的诉讼请求、事实与理由相同。二、2015年10月19日，秦方梅向定安县人民法院提起排除妨碍之诉。2015年12月10日该案开庭审理时，秦方梅提交第001522号《林权证》，龙借喜予以质证。
本院二审查明的其他事实与原审判决认定的事实一致。
本院认为，《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（七）项规定:”有下列情形之一，已经立案的，应当裁定驳回起诉：......（七）撤回起诉后无正当理由再行起诉的......”。在本案中，龙借喜于2016年8月8日提起行政诉讼，在案件审理过程中，以需要另行提起民事诉讼为由提出撤诉申请，该撤诉申请是龙借喜的真实意思表示，龙借喜作为完全民事行为能力人，应当认识到另行提起民事诉讼可能败诉的风险，故其在另行提起民事诉讼败诉后基于同一事实和理由再行起诉，不应当认为有正当理由，依法应予驳回。此外，《中华人民共和国行政诉讼法》第四十六条第一款规定：”公民、法人或者其他组织直接向人民法院提起诉讼的，应当自知道或者应当知道作出行政行为之日起六个月内提出。法律另有规定的除外。”根据本案查明的事实，龙借喜至迟于2015年12月10日知道本案被诉的颁证行为，其于2016年8月8日向原审法院提起行政诉讼，请求撤销本案被诉的颁证行为，超过法律规定的起诉期限。依照《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（二）项之规定，依法亦应当裁定驳回起诉。虽然（2016）琼96行初176号案不是本案的审查范围，案件处理结果是裁定准予撤回起诉，并未进行实体判决，但对该问题予以指出。
综上，原审判决认定事实基本清楚，但适用法律错误，处理结果不当，应予撤销。秦方梅的上诉请求和上诉理由成立，应予支持。依照《中华人民共和国行政诉讼法》第八十九条第一款第（二）项、《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（七）项、第三条第二款之规定，裁定如下：
一、撤销海南省第一中级人民法院（2017）琼96行初96号行政判决；
二、驳回龙借喜的起诉。
一、二审案件受理费予以退还。
本裁定为终审裁定。
审判长聂海波
审判员王华
审判员刘利红
书记员井泉旺
附相关法律法规：
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