海南省海口市中级人民法院
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（2016）琼01行初301号
原告海口市美兰区演丰镇美兰村委会谭康仔村民小组，住所地海口市美兰区演丰镇美兰村委会谭康仔村。
法定代表人吴挺雄，组长。
原告海口市美兰区演丰镇美兰村委会村内仔村民小组，住所地海口市美兰区演丰镇美兰村委会村内仔村。
法定代表人吴明壮，组长。
原告海口市美兰区演丰镇美兰村委会美兰下村民小组，住所地海口市美兰区演丰镇美兰村委会美兰下村。
法定代表人卢章源，组长。
以上共同委托代理人唐晓烨，海南天皓律师事务所律师。
以上共同委托代理人喻鹏飞，海南天皓律师事务所律师。
被告海口市人民政府，住所地海口市长滨二路市政府第二办公区。
法定代表人倪强，市长。
委托代理人吴孔军，海南瑞来律师事务所律师。
委托代理人李乐，海口市人民政府法律顾问室法律顾问。
第三人海南中惠房地产开发有限公司,住所地海口市美兰区演丰镇人民政府办公楼5楼501房。
法定代表人乔建平，总经理。
委托代理人李超鹏，1982年6月15日出生，瑶族，该公司法务专员。
原告海口市美兰区演丰镇美兰村委会谭康仔村民小组(以下简称谭康仔村民小组）、海口市美兰区演丰镇美兰村委会村内仔村民小组（以下简称村内仔村民小组）、原告海口市美兰区演丰镇美兰村委会美兰下村民���组（以下简称美兰下村民小组）不服被告海口市人民政府（以下简称市政府）向第三人海南中惠房地产开发有限公司（以下简称中惠公司）颁发国有土地使用证一案，于2016年8月29日向本院提起诉讼。本院于同日立案后，依法向被告送达了起诉状副本及应诉通知书。本院依法组成合议庭，于2016年11月15日公开开庭审理了本案。原告谭康仔村民小组的法定代表人吴挺雄、村内仔村民小组的法定代表人吴明壮、美兰下村民小组的法定代表人卢章源及其共同委托代理人唐晓烨、被告市政府的委托代理人吴孔军、李乐、第三人中惠公司的委托代理人李超鹏到庭参加诉讼。本案现已审理终结。
本案被诉行为系被告市政府向第三人中惠公司颁发的海口市国用（2008）第002369号《国有土地使用证》（以下简称002369号证）。
原告诉称，位于海口市××区的143241.20平方米土地，系三位原告所有的土地。原告自1992年将土地承包给原琼山穗琼联营民政开发公司（后更名为海南承海实业投资有限公司、以下简称穗琼公司）使用，并收取相应的土地承包款。2007年，原告发现，该土地早于2002年由被告向穗琼公司颁发了证号为琼山籍国用（2002）字第09-0056号国有土地使用证（以下简称09-0056号证）。原告向海南省人民政府申请行政复议，要求撤销该证。复议期间，海南省人民政府以案件存在重大事实问题需要进一步调查为由，中止复议程序。此期间，第三人向海南承海实业投资有限公司（以下简称承海公司）受让上述土地，被告因此于2008年注销了09-0056号证，向第三人颁发002369号证。2016年，海南省人民政府恢复审理，并于2016年4月以09-0056号证已被注销为由，终止行政复议程序。
原告认为，被告市政府超出自身审批权限，采取化整为零的方式征用土地，并在涉案土地征用过程中，完全��反土地管理法的有关规定，未办理农用地转用审批手续，未依法公告，未与原告签订征用土地补偿协议书，也未作出征地决定书，征地程序存在明显违法的行为，因此，上述土地依法仍应属原告所有集体土地，故被告征收原告所有的土地的行为违法。被告在明知该地存在争议并复议，并且该地为空地的情况下，违反相关法律规定，将09-0056号证注销重新给第三人办理002369号证行为，亦存在明显错误，侵害了原告的合法权益。请求：1、撤销被告向第三人颁发的002369号证；2、诉讼费用由被告承担。
被告市政府辩称：一、原��不具有诉讼主体资格，应依法驳回其起诉。《中华人民共和国物权法》第九条规定，不动产物权的设立、变更、转让和消灭，经依法登记，发生效力。第十七条规定，不动产权属证书是权利人享有该不动产物权的证明。就本案而言，涉案土地于1999年登记在穗琼公司名下，证号为09-0056号。本案涉及的土地证系由09-0056号证变更而来。根据涉案土地多次变更使用人的事实看，涉案土地依法属于国有土地使用权，而原告诉称涉案土地属于其所有的集体土地，对涉案土地既没有依法进行登记，也没有取得相应的不动产权属证书或其他司法确权文书。因此，原告与被告颁发国有土地使用证的行为没有法律上利害关系，不具有原告诉讼主体资格，应依法驳回其起诉。二、被告颁发002369号证的具体行政行为认定事实清楚，程序合法，符合法律法规规定。本案所涉土地位于海口市演丰镇美兰墟，面积143202.84平方米，土地用途为工业用地，四至为东至空地，南至空地，西至中惠公司，北至中惠公司。1992年穗琼公司申请选址在美兰墟进行专项成片开发兴建国际药业城，项目立项以及项目用地申请后得到政府各相关部门的批准同意。涉案土地属海南国际药业城建设用地中的一部分。因在海南金元投资控股有限公司、海南睿丰光纤光缆有限公司、承海公司借款合同纠纷一案中，海口市中级人民法院于2006年11月以（2005）海中法执字第115-3号民事裁定书，裁定将承海公司所有的位于琼山区美兰墟的398552.65平方米的土地使用权（证号为琼山籍国用（2002）字第09-0054号、（2002）09-0055号、（2002）09-0056号）、位于美兰国际药城的24282.367平方米土地使用权（证号为琼山籍国用（1999）字第09-0024号），以第三次拍卖的保留价3225万元抵偿给海南金元投资控股有限公司。2007年12月20日，因海南金元投资控股有限公司、承海公司及海口市美兰区演丰镇人民政府达成《和解协议》，约定由海口市美兰区演丰镇人民政府替承海公司向海南金元投资控股有限公司偿还3225万元债务后，由演丰镇政府行使相应的土地权利。之后，承海公司与第三人签订《土地使用权证转让合同》，约定以使用权入股的方式转让涉案土地使用权，并共同向被告的土地管理部门提出土地使用权转受让申请，并提交了土地证、和解协议、转让合同等相关资料。被告的土地管理部门受理申请后，国土部门依法进行地籍调查、权属审核，在确认土地来源合法、四至清楚、面积准确的情况下，依据《土地登记规则》的规定，依法给第三人颁发了002369号证。据此，被告颁发002369号证的具体行政行为，认定事实清楚，程序合法，符合法律法规规定，依法应予以维持。
第三人中惠公司述称，原告诉请无事实和法律依据。第三人受让地块时的土地性质已由集体土地转为国有土地，原村集体丧失土地所有权，原告无权对第三人受让的国有土地进行受让。涉案土地来源是通过与承海公司签订土地使用权转让协议取得，并依法支付土地转让款，该转让行为符合法律规定。第三人按法律规定提出土地登记申请并缴纳相关税费，取得了被告颁发的002369号证，原告没有证据证实该颁证行为违反法律的强制性规定。此外，002369号证已经海南省人民政府复议决定确认合法有效，复议决定未经撤销，对各方当事人���有约束力，法院应当中止审理本案，待复议决定书终审判决书后再恢复本案审理。
经审理查明，本案所诉土地位于海口市演丰镇美兰墟，面积143202.84平方米，土地用途为工业用地，四至为东至空地，南至空地，西至中惠公司，北至中惠公司。涉案土地原为穗琼公司申请建设海南国际药业城项目用地的一部分。原登记在穗琼公司名下，证号为09-0056号。因借款纠纷，海口市中级人民法院（2005）海中法执字第115-3号民事裁定，将涉案宗地裁定给海南金元投资控股有限公司。2007年12月20日，海南金元投资控股有限公司、承海公���及海口市美兰区演丰镇人民政府达成和解协议。2007年12月29日，承海公司与第三人签订《土地使用权证转让合同》，约定以使用权入股的方式转让涉案土地使用权。经向被告的土地管理部门提出土地使用权转受让申请，国土部门进行地籍调查、权属审核等后，注销了09-0056号证，于2008年4月11日向第三人颁发了涉案002369号证。
本院认为，原告所诉被告市政府向第三人中惠公司颁发涉案002369号证项下土地使用权，原属穗琼公司所有，原颁发证号为09-0056号证，土地用途为工业用地。也就是说，涉案002369号证项下土地在变更登��之前即属工业用地，而非原告所称属原告集体用地。因此，被告向第三人颁发涉案002369号证的行政行为，与原告并不存在利害关系。原告起诉要求撤销被告向第三人颁发的002369号证，不符合法定起诉条件。被告辩解意见，于法有据，本院予以采纳。依照《中华人民共和国行政诉讼法》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：
驳回原告海口市美兰区演丰镇美兰村委会谭康仔村民小组、海口市美兰区演丰镇美兰村委会村��仔村民小组、海口市美兰区演丰镇美兰村委会美兰下村民小组的起诉。
本案不收取案件受理费。原告海口市美兰区演丰镇美兰村委会谭康仔村民小组、海口市美兰区演丰镇美兰村委会村内仔村民小组、海口市美兰区演丰镇美兰村委会美兰下村民小组预交的案件受理费50元，予以退还。
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。
审判长陈文红
审判员何芳
审判员潘娜
书记员麦海燕
附相关法律法规
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