海南省高级人民法院
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（2017）琼行终39号
上诉人（原审原告）：东方市八所镇小岭村民委员会第二十六村民小组。住所地：海南省东方市八所镇小岭村。
负责人：张达辉，该村民小组组长。
委托诉讼代理人：黄素云，海南威盾律师事务所律师。
被上诉人（原审被告）：东方市人民政府。住所地：海南省东方市八所镇。
法定代表人：邓敏，该市市长。
委托诉讼代理人：蔡文华，东方市人民政府法制办公室工作人员。
委托诉讼代理人：陆泓任，东方市国土资源局工作人员。
���审第三人：东方共生置业有限公司。住所地：海南省东方市三环路锦绣蓝湾小区*楼。
法定代表人：赵国荣，该公司总经理。
委托诉讼代理人：罗少雄，该公司职员。
委托诉讼代理人：符运杰，海南鳞洲律师事务所律师。
上诉人东方市八所镇小岭村民委员会第二十六村民小组（简称二十六村小组）因与被上诉人东方市人民政府（简称东方市政府）及原审第三人东方共生置业有限公司（简称东方共生公司）土地行政登记纠纷一案，不服海南省第二中级人民法院（2016）琼97行初131号行政裁定，向本院提起上诉。本院于2017年1月14日立案后依法组成���议庭对本案进行了审理，现已审理终结。
二十六村小组向原审法院诉称，”飞机场”约有1000多亩土地，现属海南省东方市八所镇管辖。早在1972年，小岭村人在原东方县政府委派的驻村工作组带领下在”飞机场”进行开荒，共开荒出水田76亩，其中二十六村小组拥有15亩。随后二十六村小组一直在开荒地上种植水稻，并承担上缴公粮的任务。1998年第二轮农村土地承包时，二十六村小组依法将属于其所有的土地发包给各村民使用，东方市农业局也据此给村民制作了《海南省��村土地承包经营权登记表》，该表明确记载了各村民承包的土地地类、地块名称和面积。2008年，二十六村小组与东方市八所镇小岭村委会第十二村民小组一并将位于”飞机场”约25亩土地发包给李尾安种植西瓜，期限为2008年12月7日至2009年4月30日止，合同期满后李尾安又将土地归还二十六村小组使用。后二十六村小组发现东方市政府已在1993年将二十六村小组享有的约4.1亩土地登记至东方共生公司名下，证号为东方国用（八所）字第509号《国有土地使用证》（以下简称第509号证），后变更为东方国用（2011）第033号《国有土地使用证》（以下简称第033号证）。二十六村小组认为，”飞机场”15亩土地系二十六村小组的先辈早年开荒所得，自开荒出来后一直耕作至二十六村小组部分土地被征收期间，没有其他村委会或村民��组提出异议，因此可认定二十六村小组是涉案土地所有权人。二十六村小组从始至终无人知晓涉案土地已被征收为国有土地，更不知该地已被出售给第三人。政府征收土地应当依法发布征地公告和征地补偿、安置方案，但二十六村小组从未见过任何公告，亦未领取补偿金，东方市政府于2011年向东方共生公司颁发第033号证是无效行为。2015年2月13日，东方市政府又给东方共生公司换发了东方国用（2015）第A000022号《国有土地使用证》（以下简称第A000022号证）也是错误的。综上，请求人民法院判决：一、确认东方市政府给东方共生公司颁发第033号证的行为无效；二、撤销东方市政府给东方共生公司颁发的第A000022号证；三、确认二十六村小组对争议地享有所有权。
原审法院经审理查明，东方共生公司最初登记名称为东方黎族自治县琼源实业开发公司，1997年变更登记为东方市琼源实业开发公司，2011年变更登记为东方市琼源实业开发有限公司，2014年变更登记为东方共生置业有限公司。1993年，原东方黎族自治县人民政府以东府[1993]26号文件，同意征收案涉土地出让给东方黎族自治县琼源实业开发公司作为办公、商住用地，并于1993年7月向东方黎族自治县琼源实业开发公司颁发了第509号证。此后，由于公司名称变更，东方市政府于2011年8月25日为东方市琼源实业开发有限公司换发了第033号证，即将第509号证变更登记为第033号证。2015年2月14日，东方市政府又将第033号证变更登记为第A000022号证，土地使用权人为东方共生置业有限公司。
原审法院另查明，二十六村小组于2016年4月19日向原审法院提起诉讼，请求撤销东方市政府颁发给东方共生公司的第509号证，原审法院于2016年5月24日作出（2016）琼97行初91号行政裁定，以二十六村小组诉请撤销第509号证超过二十年起诉期限为由裁定驳回二十六村小组的起诉，二十六村小组不服上诉至海南省高级人民法院，海南省高级人民法院于2016年10月28日作出（2016）琼行终445号行政裁定，驳回二十六村小组的上诉。
原审法院再查明，东方共生公司已在涉案土地上开发房地产项目并对其地上建筑房屋进行销售后部分交付使用。
原审法院认为，首先，《中华人民共和国行政诉讼法》第二十五条第一款规定：”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。”《最高人民法院关于行��诉讼证据若干问题的规定》第四条规定：”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。”根据以上规定，公民、法人或者其他组织向人民法院起诉时，应当提供相应的证据材料证实其与被诉行政行为有利害关系，证明行政机关的行政行为对公民、法人或者其他组织的合法权益已产生实际影响。本案中，二十六村小组主张其与东方市政府颁发第033号证及第A000022号证的行为有利害关系，其主要证据是《土地证明书》、《证明》、《上缴公粮表》、《合同书》等，但是二十六村小组提交的以上证据无法确认其主张权属的土地的四至范围及坐落，二十六村小组的现有证据不能证明其主张权利的土地与第033号证及第A000022号证项下土地系同一块地，不足以证实其对被诉土地证项下的土地享有所有权或使用��，故东方市政府的颁证行为并未对二十六村小组的合法权益产生实际影响，二十六村小组与东方市政府颁发第033号证及第A000022号证的行政行为不存在利害关系，二十六村小组在本案中不具备适格的原告主体资格。其次，本案被诉的第033号证是因为土地使用权人名称的变更而由第509号证变更登记而来，第A000022号证亦因为土地使用权人名称的变更而由第033号证变更登记而来，二十六村小组关于撤销第509号证的诉讼请求已被人民法院生效裁定以超过二十年起诉期限为由驳回了起诉。第509号证作为东方共生公司合法有效的权利凭证，依照《中华人民共和国物权法》第二条第三款及第九条关于已依法登记的物权权利的相关规定，具有排他的物权效力，第033号证及第A000022号证在此基础上因第三人公司名称变更而进行的相应变更登记，符合相关法律规定，亦未对二十六村小组的合法权益产生实际影响，二十六村小组与本案被诉变更登记行为不存在利害关系，因此，二十六村小组不具备原告主体资格，其起诉依法亦应予驳回。此外，关于二十六村小组要求确认其对争议地享有所有权的诉讼请求，不属于人民法院行政审判权限范围，原审法院不予审查。综上，原审法院裁定驳回二十六村小组的起诉。
二十六村小组不服原审裁定，上诉称，一、涉案土地依法为上诉人所有。上诉人早年在”飞机场”开荒15亩土地用于种植水稻，并承担上缴公购粮的任务。直至2008年上诉人与东���市八所镇小岭村委会第十二村民小组一并将位于”飞机场”约25亩土地发包给李尾安种植西瓜，期限为2008年12月7日至2009年4月30日止，合同期满后李尾安又将土地归还上诉人使用。二、原审法院认为上诉人对涉案土地不具备诉讼主体资格是错误的。相邻方对上诉人开荒土地的四至范围及面积均无异议，上诉人一审提交的证据完全可以证明上诉人主张权利的地块与第033号证及第A000022号证项下土地系同一地块，上诉人当然具有诉讼主体资格。三、第033号证及第A000022号证项下土地的面积为33669.3平方米，而第509号证项下土地的面积为33719平方米，由土地证面积的差异可知，第033号证及第A000022号证不是第509号证变更登记而来。综上，请求二审法院撤销原审裁定，指令原审法院继续审理本案。
被上诉人东方市政府答辩称，由于第509号证是上世纪九十年代颁发的，当时没有精确的测量土地面积的工具，是人工测绘，而换发第033号证及第A000022号证时是通过GPS定位测量的，故第033号证及第A000022号证登记的土地面积与第509号证登记的土地面积不一致。原审裁定驳回二十六村小组的起诉正确，请求二审法院依法予以维持。
原审第��人东方共生公司述称，一、上诉人主张其对争议地享有所有权没有事实依据及法律依据。涉案土地原为东方市八所镇八所村委会和皇宁村委会的土地，早在1993年4月3日就由原东方黎族自治县人民政府依法征收并批复同意给原审第三人使用。原审第三人与原东方黎族自治县土地管理局签订《国有土地使用权出让合同书》并缴纳土地出让金后，政府于1993年7月12日给原审第三人颁发了第509号证，原审第三人依法取得涉案争议地的使用权。二、上诉人不是本案适格诉讼主体。上诉人无法证明其主张权利的土地与涉案土地系同一地块，更无法证明其对涉案土地享有合法的所有权和使用权，故被诉颁证行为未对上诉人的合法权益产生实际影响，上诉人与被诉颁证行为不存在利害关系。三、第033号证及第A000022号证与第509号证项下土地的四至范围是一致的，只是因测量仪器和方式不同致使登记面积出现差异，第033号证及第A000022号证是由第509号证变更登记而来。第509号证颁发时间是1993年7月12日，上诉人于2016年4月才提起行政诉讼，超过法定起诉期限。综上，原审裁定认定事实清楚，适用法律正确，请求二审法院予以维持。
本院经审理查明：第033号证及第A000022号证与第509号证项下土地的坐落及四至范围一致。第509号证项下土地的面积为33719平方米，第033号证及第A000022号证项下土地的面积为33669.3平方米。
本院对原审法院查明的事实予以确认。
本院认为，本案的争议焦点是上诉人二十六村小组是否具有提起本案诉讼的原告主体资格。《中华人民共和国行政诉讼法》第二十五条第一款规定：”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。”二十六村小组诉请确认东方市政府给东方共生公司颁发第033号证的行为无效并请求撤销东方市政府给东方共生公司颁发第A000022号证的行为，就应当提供证据证明其与东方市政府的上述颁证行为有利害关系。二十六村小组提供的《证明》、《上缴公粮表》、《合同书》及《东方市农村土地承包经营权证登记表》等证据无法明确其主张权属的土地的四至范围及坐落，二十六村小组提供的证据不足以证实其对涉案土地证项下的土地享有所有权或者使用权。根据审理查明的情况，由于原审第三人东方共生公司名称变更，东方市人民政府于2011年8月25日将第509号证变更登记为第033号证，于2015年2月14日又将第033号证变更登记为第A000022号证。东方市政府颁发第033号证及第A000022号证时仅是根据更加科学的测绘手段将第509号证项下土地面积由33719平方米更正登记为33669.3平方米，并未对土地使用者、坐落、四至范围、用途等进行变更。东方市��府因土地使用权人名称的变更而为东方共生公司颁发第033号证及第A000022号证的行政行为未对二十六村小组的权利义务造成实际影响，二十六村小组与东方市政府颁发第033号证及第A000022号证的行政行为不存在利害关系，二十六村小组不具备提起本案诉讼的适格原告主体资格。另外，原审裁定认定二十六村小组要求确认其对争议地享有所有权的诉讼请求不属于人民法院行政审判权限范围正确，二十六村小组对此没有异议，二审审理过程中也表示愿意放弃该项诉讼请求。综上，原审裁定驳回二十六村小组的起诉并无不当，应予维持。二十六村小组的上诉理由缺乏事实和法律依据，本院不予支持。依照《中华人民共和国行政诉讼法》第八十九条第一款第一项之规定，裁定如下：
驳回上诉，维持原裁定。
本裁定为终审裁定。
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审判长孔琼
审判员叶珊茹
审判员魏文豪
法官助理李宗帅
书记员文明哲
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