海南省三亚市中级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼02行终89号
上诉人（原审原告）：陈光栋，男，1946年10月30日出生，汉族，住三亚市。
上诉人（原审原告）：陈光标，男，1959年9月10日出生，汉族，住三亚市。
被上诉人（原审被告）：三亚市规划局崖州规划分局，住所地：三亚市崖州区崖州大道区政府院内。
法定代表人：卢伟，该局局长。
原审第三人：陈銮美，女，1986年6月17日出生，汉族，住三亚市。
上诉人陈光栋、陈光标因与被上诉人三亚市规划局崖州规划分局，原审第三人陈銮美建设规划行政许可一案，不服三亚市城郊人民法院(2017)琼0271行初126号行政裁定，向本院提起上诉。本院依法组成合议庭对本案进行了审理。
原审法院认为，本案原告并不是被诉行政行为的相对人，因此，原告只有证明自己系本案的利害关系人，才能具备提起本案行政诉讼的原告主体资格。而利害关系人必须是拥有合法权益的行政相关人。原告主张第三人的建房用地为其祖屋宅基地，被诉行政行为许可第三人在该宅基地上建房侵犯了其对该宅基地的合法使用权。对此原告应举证证明自己是第三人建房用地的合法使用权人，否则不能成为本案的利害关系人、不能提起本案行政诉讼。原告为证明其为第三人建房用地的合法使有权人而提供的证据原崖县人民政府1953年向其父亲颁发的土地房产所有证，该土地房产所有证只有确认土地权属的证据效力，不能作为合法取得土地使用权的物权凭证，也不能证明该土地房产所有证上所记载的土地与第三人建房用地具有关联性。原告提交的其他证据也不足以证明原告系第三人建房用地的合法使用权人。原告提供的现有证据均不能证明原告系第三人建房用地的合法使用权人，因而不能证明被诉行政行为侵害了其合法取得的土地使用权，不能证明原告为被诉行政行为的利害关系人。因此，原告不是被诉行政行为的利害关系人，依法不具有提起本案行政诉讼的原告主体资格，对其起诉，依法应予以驳回。依照《中华人民共和国行政诉讼法》第二十五条第一款、第四十九条；《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（一）项的规定，裁定驳回上诉人的起诉。
上诉人上诉认为：第三人陈銮美在与上诉人有权属争议的宅基地上建房，三亚市规划局崖州规划分局不顾该地存在的权属争议，未经调查和审核，违法向第三人颁发乡村建设规划许可证。上诉人依法提起行政诉讼，原审法院以上诉人与被诉行政行为没有利害关系，认为上诉人不具本案原告主体资格，裁定驳回上诉人的起诉，认定事实和适用法律错误，程序违法，应予撤销。理由如下:
一、一审判决认定上诉人与被诉行政行为无利害关系，是错误的。
上诉人提供了原崖县人民政府1953年颁发的土地房产所有证、村民证言、照片等证据，足以证明上诉人系陈銮美建房用地的合法使用权人。
即使一审法院认为上诉人提供的上述证据不足以证明上诉人系陈銮美建房用地的合法使用权人，至少也能证明上诉人与陈銮美就涉案土地具有权属争议。依据土地管理法第十六条”在争议解决前，任何一方不得改变土地利用现状”的规定，上诉人作为土地争议方有权要求陈銮美维持土地现状。而三亚市规划局崖州规划分局在未解决土地权属争议的情况下，径直向陈銮美颁发建设规划许可证，允许陈銮美在争议土地上建房，显然违反了土地管理法的禁止性规定，并侵害了上诉人作为土地争议方要求维持土地利用现状的合法权益。因此，上诉人与被诉行政行为具有利害关系，一审判决认定上诉人与被诉行政行为无利害关系，是错误的。
二、被诉行政行为认定事实和适用法律错误，程序违法，应予撤销。
（一）被告具体行政行为程序不合法。
1、根据《海南省城乡规划条例》第四十一条规定”在乡、村庄规划区内使用原有宅基地建设农村村民住宅的，农村村民应当持户籍证明、宅基地使用证明、村民委员会签署的书面意见等有效文件，向乡镇人民政府提出申请，由乡镇人民政府依据乡、村庄规划审查，核发乡村建设规划许可证”。另外，《海南省农村居民建房审批办法》第八条第（二）项明确规定”需要在原址拆旧房建新房的，应提供土地行政主管部门批准用地文件、居民户口簿、现有住房、家庭成员等相关材料”。本案中，被告所提交的证据材料中并没有申请人陈銮美的户口簿、身份证复印件、宅基地使用证明以及宗地坐标、家庭成员等依法报建应提交的申请材料。甚至”三亚市崖州区村（居）民住房报建审批表”的原件都没有，根据行政诉讼法规定，被上诉人未提供证据原件，依法应认定被上诉人没有举证，依法应承担不利法律后果。故此，被上诉人在缺少法律规定的必须提交的材料的情形下仍然给第三人颁发乡村建设规划许可证，明显违反法律规定。
2、被上诉人没有履行依法公示程序。程序上，根据《海南省农村居民建房审批办法》第八条第（五）项规定，被上诉人作出审核意见后，应将审核结果在村委会公示栏进行公示。但就本案而言，被上诉人提交的居委会、居民小组的书面公告，在形式上不符合《海南省农村居民建房审批办法》第八条第（五）要求，不能证明被上诉人已做了公示。另外，该公告还存在公告时间、地点都不明确等问题，是否在居委会公示栏公示无法证明，且公示主体不是被上诉人。因此，依法应认定被上诉人未按法律规定程序进行公示，程序违法。
（二）第三人对建房用地并未取得合法土地使用权，被上诉人向第三人颁发的乡村建设规划许可违法。
居委会、居民小组不是土地行政主管部门，其不具有宅基地使用权批准权限，居民小组、居委会的意见并不等宅基地使用权证明，根据被上诉人提交的三亚市崖州国土资源管理分局2016年11月3日出具的《关于给予梅联村委会陈銮美宅基地出具土地规划意见的复函》中明确说明”目前涉案的地块尚未办理确权登记”。由此可知，三亚市土地行政主管部门的意见很明确，即涉案土地还没有确权登记给第三人，第三人并没有取得涉案宅基地使用权。被上诉人片面认为只要国土部门出具意见而不管意见的具体内容是什么都可以作颁证的依据，这显然是理解错误。
另外，根据被上诉人提交的住房报建审批表内容显示，第三人申请的宗地面积为175平方米，但是在崖州区国土资源管理分局的复函却是229.89平方米，在公告中注明的面积是229平方米。由此可知，第三人实际的用地面积明显大于申请面积，而且超过了《海南省农村居民建房审批办法》和《三亚市农村宅基地管理办法》规定的”一户村民使用的宅基地不得超过175平方”的规定。况且，第三人并不是一户村民，第三人与其父亲共同一户，并无分户手续。因此，被上诉人实际上在第三人没有取得宅基地使用证明以及建房使用面积明显超标准，而且不是单独一户的情况下给予第三人颁发规划许可，被上诉人的具体行政行为违法，依法应予撤销。
（三）第三人在申请表中注明是”拆掉祖屋重建”与客观事实不符，第三人父亲已在梅联村另外一地块上建了房屋，涉案土地上并没有第三人所称的祖屋，也不存在拆掉祖屋重建的事实。退一步而言，即使拆掉祖屋重建也应该是以第三人父亲名义报建，而不应以第三人名义进行报建。因此，被上诉人对第三人申请建房原因和理由并未认真依法审核，未尽依法审核义务。
（四）被上诉人根据城乡规划法第四十一条规定给第三人颁发规划许可证属于适用法律错误。城乡规划法第四十一条只是授权性法律规定，根据该条法律规定并不能明确规划部门颁发许可证需要审查那些材料、程序如何进行，海南省乡村建设规划许可证颁发的具体要求和程序是由《海南省城乡规划条例》和《海南省农村居民建房审批办法》规定的。因此，被上诉人根据城乡规划法第四十一条规定给第三人颁发规划许可证适用法律错误，有规避海南省相关规定之嫌。
综上所述，被诉行政行为与上诉人具有利害关系，一审裁定认定上诉人与被诉行政行为无利害关系并驳回上诉人的起诉，显然是错误的，应予撤销。被诉行政行为认定事实和适用法律错误，程序违法，应予撤销，请求二审法院依法支持上诉人的上诉请求。
本院认为：上诉人因被一审法院认为提供的证据不能证明系争议土地的合法使用权人，与被诉行政行为没有利害关系，不具有本案原告主体资格，被裁定驳回本案起诉，属于程序上的法律审查，本案二审审查的范围限于一审裁定认定事实和适用法律是否清楚、正确，不涉及被诉行政行为的实体审查，因此关于上诉人提出的”被诉行政行为认定事实和适用法律错误，程序违法，应予撤销”上诉请求，不属于二审审查范围，本院不予审查。
本案审查的关键问题在于上诉人与被诉行政行为是否具有法律上利害关系，具有本案诉讼原告主体资格。上诉人一审时提供了其家庭在土改时期原崖县人民政府颁发的《土地房产所有证》，该《土地房产所有证》上载明的房产四至范围与本案被诉行政行为涉及的土地现状四至相吻合。虽然原崖县人民政府1953年颁发的《土地房产所有证》因为国家土地政策的变化，目前只有证明土地权属的证据效力，不能作为合法取得土地所有权的物权凭证，但是对于1953年前依据土改政策取得的土地和房产，如果使用权未有明确的变动和调整，我国一直按照”尊重历史，维护现状，方便生产，方便生活”的原则处理这方面的历史遗留问题，维护现有土地使用秩序的稳定。本案现有证据查明，本案涉案土地尚未办理新的确权登记，上诉人依据土改时期原崖县人民政府颁发的《土地房产所有证》主张其对涉案土地具有使用权，证据确实，事实清楚。一审法院将土改时期国家颁发的《土地房产所有证》确认的所有权误解为使用权，认为只有取得现今政府颁发的物权凭证，才能证明拥有合法权益，成为被诉行政行为的利害关系人，法理逻辑错误，应予纠正。上诉人关于其提起本案诉讼符合法律规定，法院应予受理，本院予以支持。
综上，一审裁定认定事实不清，适用法律错误，应于纠正。依照《中华人民共和国行政诉讼法》第八十九第一款第（二）项；《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》第六十八之规定，裁定如下：
一、撤销海南省三亚市城郊人民法院作出的（2017）琼0271行初126号行政裁定；
二、本案指令海南省三亚市城郊人民法院继续审理。
本裁定为终审裁定。
审判长李宝鹏
审判员左家锋
审判员林元贵
二〇一七年十二月二十六日
法官助理陈永华
书记员邢华云
附：本案相关法律条文
《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；
......
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
第六十八条第二审人民法院经审理认为原审人民法院不予受理或者驳回起诉的裁定确有错误，且起诉符合法定条件的，应当裁定撤销原审人民法院的裁定，指令原审人民法院依法立案受理或者继续审理。
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[{法规名称:\'《中华人民共和国刑法（1997年）》\',Items:[{法条名称:\'第七十八条第二款\',法条内容:\'
减刑以后实际执行的刑期不能少于下列期限：[ly] （一）判处管制、拘役、有期徒刑的，不能少于原判刑期的二分之一；[ly]
（二）判处无期徒刑的，不能少于十三年；[ly]
（三）人民法院依照本法第五十条第二款规定限制减刑的死刑缓期执行的犯罪分子，缓期执行期满后依法减为无期徒刑的，不能少于二十五年，缓期执行期满后依法减为二十五年有期徒刑的，不能少于二十年。[ly]\'},{法条名称:\'第七十八条第一款\',法条内容:\'
第七十八条
被判处管制、拘役、有期徒刑、无期徒刑的犯罪分子，在执行期间，如果认真遵守监规，接受教育改造，确有悔改表现的，或者有立功表现的，可以减刑；有下列重大立功表现之一的，应当减刑：[ly]
（一）阻止他人重大犯罪活动的；[ly] （二）检举监狱内外重大犯罪活动，经查证属实的；[ly] （三）有发明创造或者重大技术革新的；[ly]
（四）在日常生产、生活中舍己救人的；[ly] （五）在抗御自然灾害或者排除重大事故中，有突出表现的；[ly] （六）对国家和社会有其他重大贡献的。[ly]
减刑以后实际执行的刑期，判处管制、拘役、有期徒刑的，不能少于原判刑期的二分之一；判处无期徒刑的，不能少于十年。[ly]\'},{法条名称:\'第七十九条\',法条内容:\'
第七十九条
对于犯罪分子的减刑，由执行机关向中级以上人民法院提出减刑建议书。人民法院应当组成合议庭进行审理，对确有悔改或者立功事实的，裁定予以减刑。非经法定程序不得减刑。[ly]\'}]},{法规名称:\'《中华人民共和国刑事诉讼法（2012年）》\',Items:[{法条名称:\'第二百六十二条第一款\',法条内容:\'
第二百六十二条罪犯在服刑期间又犯罪的，或者发现了判决的时候所没有发现的罪行，由执行机关移送人民检察院处理。[ly]
被判处管制、拘役、有期徒刑或者无期徒刑的罪犯，在执行期间确有悔改或者立功表现，应当依法予以减刑、假释的时候，由执行机关提出建议书，报请人民法院审核裁定，并将建议书副本抄送人民检察院。人民检察院可以向人民法院提出书面意见。[ly]\'}]}]};if
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