海南省第二中级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼97行初280号
海南省第二中级人民法院
行政裁定书
（2017）琼97行初280号
原告儋州市那大镇洛基村委会南安村民小组。
负责人温思浩，该组组长。
委托诉讼代理人陈家健，儋州市那大法律事务所法律工作者。
委托诉讼代理人温王强，男，1955年10月27日出生，黎族，住海南省儋州市。
被告儋州市人民政府，住所地海南省儋州市那大镇中兴大道市委办公大楼。
法定代表人朱洪武，该市市长。
委托诉讼代理人许积师，该市法制办工作人员。
第三人儋州市那大镇人民政府，住所地儋州市那大镇工业大道。
法定代表人：蒙毓贤，该镇镇长。
委托诉讼代理人何宪秋，该镇司法所工作人员。
委托诉讼代理人时强文，海南昌宇律师事务所律师。
原告儋州市那大镇洛基村委会南安村民小组（以下简称南安村小组）诉被告儋州市人民政府（以下简称儋州市政府）及第三人儋州市那大镇人民政府（以下简称那大镇政府）土地行政登记纠纷一案，本院受理后，依法组成合议庭，公开开庭审理了本案。原告南安村小组委托诉讼代理人陈家健、温王强与被告儋州市政府委托诉讼代理人许积师及第三人那大镇政府委托诉讼代理人何宪秋、时强文到庭参加诉讼，本案现已审理终结。
被诉行政行为：被告儋州市政府于2008年11月20日给第三人那大镇政府颁发儋国用（2008）第2249号《国有土地使用证》（以下简称2249号证），该证项下登记的土地面积为12769.8平方米。
原告南安村小组诉称：争议地位于儋州市××镇（原洛基镇政府办公驻地）面积19.15亩（不含2010年洛基派出所占用原告土地约7亩），四至：东至南安村农用地、西至洛基街道、南至洛基粮所和南安村橡胶地、北至××村农用地。该土地原属于原告集体所有农用地，其中，基本农田约7亩、耕地约10亩、温发贵橡胶地约1亩和人行道约1亩。1986年至1987年期间，洛基镇政府扩建时未与原告签订土地征用补偿协议书、未办理征地手续、未给付原告相关征地补偿费，仅付原告村民温发贵几十株橡胶树（青苗补偿费）却占用该争议地建一栋五间三层的办公楼和四栋宿舍楼首层，当时遭到原告村民反对，但洛基镇政府强行使用该土地建房，2000年洛基镇政府机关驻地另行选址搬迁到洋浦那东公路8公里处时，南安村要求归还土地未果，2010年原告组织村民在该荒废的土地上种植橡胶至今。2002年洛基镇政府被撤销并入第三人那大镇政府，2008年11月20日儋州市政府向第三人那大镇政府颁发国有土地使用证，将该土地登记在第三人名下。期间，原告多次上访申诉要求归还土地及申请土地确权。2017年7月7日，儋州市国土资源局作出儋国土资答复[2017]71号《信访事项答复意见书》（以下简称71号意见书）告知儋州市政府于2008年向那大镇政府颁发2249号证，建议向人民法院提起行政诉讼。被告向第三人颁发国有土地使用证的宗地系原告集体农用地，被告和第三人未与原告办理征地手续、未支付相关补偿费，登记的宗地权属来源不合法，且该土地权属存在争议，未经原告同意，亦未予公告，被告给第三人颁发的2249号证存在程序违法。综上，南安村小组请求：撤销被告儋州市政府于2008年11月20日给第三人那大镇政府颁发的2249号证。
被告儋州市政府答辩称：第一，2249号证的土地来源清楚，登记程序合法，该证合法有效。2249号证是根据原儋国用（洛基）字第11748号《国有土地使用证》（以下简称11748号证）换发而来，2249号证的土地界址均在11748号证的范围之内。11748号证是儋州市政府于1996年5月依法颁发给洛基镇政府，该证登记的土地面积为17022.2平方米。2002年，根据省政府的要求，儋州市政府调整了行政区划，将洛基镇并入那大镇，原洛基镇政府的权利义务全部转移给那大镇政府。2008年11月，儋州市政府将11748号证变更登记为2249号证，土地权利人为那大镇政府，土地面积为12769.8平方米，减少的4252.4平方米已划拨给洛基派出所使用。第二，南安村小组的起诉超过法定的起诉期限。2249号证是由11748号证直接换发而来，除了洛基派出所使用的土地外，其他登记的土地界址没有发生实质性改变。南安村小组没有否定11748号土地证的合法有效性，该证是1996年5月颁发，至今已有21年，已超过法定的20年最长起诉期限。因此，南安村小组提起本案诉讼超过起诉期限。第三，南安村小组的诉请没有事实基础和法律根据。2249号证项下的土地自1957年就由洛基镇政府使用，该土地一直属于国有土地。洛基镇政府因行政规划并入那大镇政府，那大镇政府对该证项下的国有土地依法享有使用权，南安村小组诉称涉案土地未经征用仍是集体所有土地是错误的，南安村小组虽然自2010年以来就组织村民在2249号证的土地范围内种植橡胶，但这种行为不能改变该土地系国有土地的法律性质。综上，请求人民法院驳回原告的诉讼请求。
第三人那大镇政府陈述意见称：其与儋州市政府的答辩意见一致。另，2249号证是变更登记行为，并不涉及土地征收的问题。南安村小组没有提供证据证明涉案土地系其享有的集体土地，涉案土地应认定为国有土地。本案系复议前置案件，原告直接起诉不符合法律规定。
经审理，根据各方提供的在案证据，结合庭审各方的陈述意见，本院确认查明的事实如下：涉案土地位于儋州市××镇，系原儋州市洛基镇政府办公和住宿使用的土地，被告儋州市政府于1996年5月向原洛基镇政府颁发11748号证，该证项下登记的土地面积为17022.2平方米，四至范围：东至橡胶林，西至公路，南至粮站、中学，北至水田。2002年，根据海南省政府的要求，儋州市政府调整了行政区划，将洛基镇并入那大镇。后因11748号证遗失，儋州市政府登报声明11748号证作废。2008年11月20日，儋州市政府向那大镇政府颁发2249号证，该证项下登记的土地面积为12769.8平方米。2249号证比11748号证登记的土地面积减少4252.4平方米，该4252.4平方米已划拨给洛基派出所使用。2010年左右，原告南安村小组的村民在2249号证的荒废土地上种植橡胶至今。2011年10月13日，原告向海南省国土环境资源厅申请要求收回其26亩村集体土地。2017年7月8日，原告向那大镇政府申请涉案土地进行土地确权。
另查明，儋州市政府于2008年11月20日颁发的2249号证，登记的土地面积12769.8平方米和洛基派出所现使用的土地面积4252.4平方米，均在儋州市政府于1996年5月颁发的11748号证的土地界址范围内。
本院认为，行政行为的相对人与行政行为具有利害关系，有权提起诉讼。《最高人民法院关于行政诉讼证据若干问题的规定》第四条第一款规定：”公民、法人或者其他组织向人民法院起诉时，应当提供其符合起诉条件的相应的证据材料。”本案根据查明的事实，涉案的土地由儋州市政府于1996年5月向原洛基镇政府颁发11748号证，该证登记确认涉案土地系国有土地，原告南安村小组诉称该土地系其集体所有的土地，仅提供证人证言证明该土地属于集体所有，但该证人证言没有其他合法有效的证据予以辅证，且该证人亦未到庭接受质询，故对原告的该主张不予采纳。原告南安村小组认为其村民于2010年在2249号证荒废的土地上种植橡胶至今，该土地应当是其集体所有的土地，而原告村民在该地上的种植行为显然在颁证行为之后，因此，本院对原告的意见不予采纳。据此，对原告主张涉案土地系其集体所有土地的辩解理由，本院不予采纳。《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）项规定：”不符合行政诉讼法第四十九规定的，已经立案的，应当裁定驳回起诉。”原告没有充分证据证明其与涉案土地具有利害关系，故对其起诉依法不予受理。参照《最高人民法院关于审理房屋登记案件若干问题的规定》第五条第三款规定：”原房屋权利人、原利害关系人未就首次转移登记行为提起行政诉讼，对后续转移登记行为提起行政诉讼的，人民法院不予受理。”本案中，儋州市政府于1996年5月颁发了11748号证，其于2008年11月20日颁发的2249号证仅是对土地使用权人的名称进行变更登记，原告在没有对11748号证的登记行为提起诉讼的情况下，直接对2249号证的登记行为提起诉讼，参照上述规定，对原告的起诉依法应不予受理。
综上，依照《中华人民共和国行政诉讼法》第二十五条第一款、第四十九条第（一）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（一）项之规定，裁定如下：
驳回原告儋州市那大镇洛基村委会南安村民小组的起诉。
案件受理费50元，退回原告儋州市那大镇洛基村委会南安村民小组。
如不服本裁定，可在裁定书送达之日起十日内，向本院递交上诉状，并按对方当事人的人数提出副本，上诉于海南省高级人民法院。
审判长孔凡勇
审判员黄海浪
审判员张成信
二○一七年十月二十三日
法官助理管娜
书记员李伟源
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