海南省高级人民法院
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（2017）琼行终199号
海南省高级人民法院
行政判决书
（2017）琼行终199号
上诉人（原审被告）临高县人民政府，住所地海南省临高县临城镇。
法定代表人曹文，该县县长。
委托代理人王学畅，临高县林业局科员。
委托代理人王超，海南嘉法律师事务所律师。
上诉人（原审第三人）冯志飘，曾用名冯志标，男，1959年12月1日出生，汉族，住海南省临高县。
委托代理人谭小艳，海南国岛律师事务所律师。
被上诉人（原审原告）王良知，男，1943年3月16日出生，汉族，住海南省临高县。
委托代理人黄燕飞，男，1950年7月7日出生，汉族，住海南省临高县。
委托代理人王涛，男，1978年9月17日出生，汉族，住海南省临高县。
上诉人临高县人民政府（以下简称临高县政府）、冯志飘因其与被上诉人王良知林权行政登记一案，不服海南省第二中级人民法院（2016）琼97行初173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，现已审理终结。
本案被诉行政行为：临高县政府于2010年6月28日向冯志飘颁发临府林证字（2010）第001610号《林权证》（以下简称001610号林权证），该证项下编号为×××的《森林、林木、林地状况登记表》中载明：林地所有权权利人为东英镇高秀村委会兰庄村民小组，林地使用权权利人为冯志飘，森林或林木所有权权利人为冯志飘，森林或林木使用权权利人为冯志飘，坐落于××县），小地名为兰庄老村坡，面积为7.8亩。
原审查明，本案争议地位于高山岭电视台发射台东南西约200米，地名为兰坡，又称耳朵坡，面积约2亩。1982年，王良知和冯志飘因土地置换没有成功，造成了双方在生产经营中发生纠纷。2005年10月10日，临高县政府向王良知颁发临高县农地承包权（波莲）第0910011号经营权证，该证项下记载有一块1.7亩的”兰庄坡地”。2009年，临高县林业局召集王良知、冯志飘、兰庄村民小组及临高县波莲镇多贤村南社经济合作社（以下简称南社经济社）进行调解，达成了临林调字（2009）第001号《林地权属争议案件调解书》（以下简称1号调解书）。调解书约定将争议林地各自生产一半，以高压线为界，北边归王良知生产经营，南边归冯志飘生产经营。2010年5月16日，冯志飘向临高县林业局递交《林权登记申请书》，申请对包括争议地在内的”兰庄老村坡”等7地块办理林地、林木权属登记手续。2010年5月17日，冯志飘与兰庄村民小组签订了林地家包字[2010]8号《海南省集体林地家庭承包合同》，承包包括争议地在内的7.8亩”兰庄老村坡”地块。临高县政府经审核公告后，于2010年6月28日向冯志飘颁发了001610号林权证。王良知认为临高县政府颁发的7.8亩”兰庄老村坡”地中有其1.7亩的”兰庄坡地”，遂诉至法院。请求撤销临高县政府颁发的001610号林权证。
原审认为,《海南经济特区林地管理条例》（2009年）第十三条规定，符合下列条件的，登记机关应当自受理申请之日起3个月内予以登记：（一）申请登记的林地位置、四至界限、面积等数据准确；（二）林地权属证明材料完备、合法有效；（三）林地权属无争议；（四）附图中标明的界桩、地物标志与实地相符合。对不符合前款规定条件的，登记机关不予登记，并以书面形式向申请人告知不予登记的理由。依此规定，登记机关办理登记的条件之一是林地权属无争议。本案中，临高县政府颁发的001610号林权证林地权属是否无争议，主要审查7.8亩”兰庄老村坡”地块是否包含了本案争议地。根据查明事实：临高县林业局在2009年曾召集王良知、冯志飘以及各自的村集体进行过调解，达成了1号调解书，确认了王良知、冯志飘使用土地的面积、范围。临高县政府在庭审中也承认1号调解书中记载的争议地坐落在001610号林权证的7.8亩”兰庄老村坡”地块的范围内，即将争议地以高压线为界划分为两块，北边的土地归王良知生产经营。因此，依上述事实可以证明，7.8亩”兰庄老村坡”地中部分土地是由王良知生产经营的。临高县政府颁证时未经审慎审查，将已调解划分给王良知的土地颁证给冯志飘，其颁发001610号林权证的行为显然事实不清，证据不足，不符合林地权属无争议的登记条件。依照《中华人民共和国行政诉讼法》第七十条第（一）项的规定，判决撤销临高县政府于2010年6月28日向冯志飘颁发的001610号林权证。案件受理费人民币50元，由临高县政府负担。
上诉人临高县政府上诉称，王良知系临高县波莲镇多贤村委会南社村民小组（以下简称南社村民小组）村民，冯志飘系兰庄村民小组村民，二人分属不同的集体经济组织。涉案争议林地1.7亩”兰庄坡地”由兰庄村民小组发包给冯志飘，即证明涉案林地所有权人属兰庄村民小组，王良知作为南社村民小组村民不能对其他集体组织的林地享有所有权。涉案林地表面上是王良知与冯志飘的争议，实质是兰庄村民小组和南社村民小组集体土地所有权的争议。因此，依据《海南省土地权属确定与争议处理条例》第三条”土地所有权和使用权由县级以上人民政府确定，土地行政主管部门具体承办”的规定，临高县林业局关于涉案林地的调解书不具有确定集体土地权属的法定效力，原审法院依据临高县林业局的调解书内容为事实依据，撤销001610号林权证错误。综上，请求撤销原审判决，查明事实依法判决。
上诉人冯志飘上诉称，原审判决证据不充分，事实查明不清，适用法律错误。一、1号调解书不具有确认林地权属问题的法律效力，且该调解书并不是由法院依法出具的法律文书，不具有强制执行效力。只有林权证才是确认林木和林地所有权或者使用权的唯一有效凭证，原审法院依据1号调解书来确认本案争议地的权属问题，属于事实查明不清，适用法律错误。（一）依据《海南经济特区林地管理条例》第八条的规定，县级以上人民政府对依法办理初始登记或者变更登记的林地，核发全国统一式样的林权证，确认所有权或者使用权。本案中，冯志飘依法向有关部门申请林权登记，并由政府部门依法颁发林权证，争议土地的使用权应以林权证登记的为准，应由冯志飘享有。（二）根据《海南省农村集体经济承包合同管理条例》第十条、第十一条的规定，承包集体所有的土地应当征求村集体的同意，并签订相应的集体土地承包合同。本案中，兰庄村民小组已经将该地块发包给冯志飘，并签订了《海南省集体林地家庭承包合同》，该承包合同有兰庄村民小组、东英镇人民政府及临高县林业局的印章予以确认。而王良知并没有与兰庄村民小组签订任何承包合同，依法不能享有兰庄村民小组的集体土地的承包经营权。（三）1号调解书并非法院出具的法律文书，不具有强制执行效力，且调解内容并非冯志飘真实意思表示，不仅损害了冯志飘的合法权益，也损害了兰庄村民小组的全体成员的权益，因此该调解协议应为无效合同，不能作为定案的依据，更不能作为确认土地权属的依据。原审法院将其作为确认土地权属的依据，显然是适用法律错误。二、临高县政府根据冯志飘提供的合法有效的证据材料依法办理林权证符合法律规定。不存在审查不清、证据不足的情况。根据《海南经济特区林地管理条例》第十一条申请林地权属初始登记应当提交的材料，冯志飘在申请林权登记时，依法提交了集体林地家庭承包合同、林权登记申请表、身份证明材料、宗地（小班）权属勘界登记表等材料，其中冯志飘提交的林地家包字[2010]8号《海南省集体林地家庭承包合同》是经过兰庄村民小组集体讨论通过后，由兰庄村民小组发包给冯志飘的，兰庄村民小组、东英镇人民政府及临高县林业局均予以盖章确认。原审法院对该证据的真实性、关联性也予以确认。临高县政府依据相关材料在颁证前也依法履行了公告程序，公告期是30天，王良知对此也未提出任何异议，应当认定为放弃提出异议的权利。因此，临高县政府依法履行职务，不存在审查不清证据不足的情况。综上，原审法院事实查明不清，适用法律错误，损害了上诉人的合法权益，请求撤销原审判决，一、二审诉讼费由王良知承担。
被上诉人王良知答辩称，一、临高县政府上诉提出涉案1.7亩”兰庄坡地”争议林地由兰庄村民小组发包给冯志飘，即证明涉案林地所有权人属兰庄村民小组，王良知作为南社村民小组村民不能对其他集体组织的林地享有所有权的说法与事实不符。临高县政府颁发给冯志飘的001610号林权证登记的7.8亩林地中包括了王良知的1.7亩土地，根本不存在涉案争议林地属兰庄村民小组所有的问题，即使涉及争议林地所有权，兰庄村民小组已经对1号调解书记载的争议地界线盖印章认可。二、临高县政府认为涉案林地表面上是王良知和冯志飘的争议，实质是兰庄村民小组和南社村民小组集体土地所有权的争议，但本案争议是林地使用权的争议，未涉及林地所有权争议，不存在林地权属确定的问题。三、临高县政府提出临高县林业局关于涉案林地的调解不具有确定集体土地权属的法定效力，原审法院依据1号调解书的内容为事实依据，撤销001610号林权证错误。被上诉人认为，临高县林业局在2009年召集王良知、冯志飘以及各自村集体组织进行调解并达成1号调解书，冯志飘及兰庄村民小组、王良知及南社经济社、临高县林业局承办人及临高县林业局均签章。1号调解书由县林业局制作形成公文具有法律效力，且在原审庭审中临高县政府也承认1号调解书中所涉争议地坐落在001610号林权证登记的7.8亩”兰庄老村坡”地块范围内。四、冯志飘提出只有林权证才是确认林木和林地所有权或者使用权的唯一有效凭证。因为本案是林业行政登记纠纷，法院对临高县政府颁发林权证的行政行为是否合法进行审查，而冯志飘上诉所称确认林权证争议地的权属问题不是人民法院行政案件审查范围的主张不成立。冯志飘上诉主张《森林法》《农村土地承包法》及《海南经济区林地管理条例》相关条款不适用本案。临高县政府给冯志飘发证登记错误。综上，原审判决认定事实清楚，证据充分，适用法律正确，程序合法，请求驳回上诉，维持原判。
本院二审查明，涉案争议地位于冯志飘001610号林权证项下编号×××的《森林、林木、林地状况登记表》”兰庄老村坡”地块范围内，本案当事人对上述林权证该地块的登记存在争议，对林权证项下其他地块的登记无争议。
本院经审理查明的其他事实与原审判决认定的事实一致，本院予以确认。
本院认为，依据林业部《林木林地权属争议处理办法》第四条第二款的规定，临高县林业局作为临高县政府的林业行政主管部门，依法按照管理权限负责办理林权争议处理的具体工作。2009年，临高县林业局就王良知与冯志飘关于涉案争议地的生产经营纠纷组织各方调解，经冯志飘及兰庄村民小组、王良知及南社经济社、临高县林业局共同签章后，达成了冯志飘与王良知以高压电线为界、各自生产一半争议林地的协议，形成了1号调解书，证实了该项林地权属存在争议并协商解决的事实。依据《海南经济特区林地管理条例》第十三条第一款第（三）项的规定，申请登记的林地应当权属无争议。本案中，冯志飘申请林权登记未如实提交林权登记材料，临高县政府亦未尽必要的审慎审查义务，导致将包含有权属争议、已调解归王良知使用的林地登记至冯志飘名下。临高县政府该项颁证行为认定事实不请，证据不足，依法应予撤销。另外，根据本案查明的事实，本案争议地登记在001610号林权证项下编号×××的《森林、林木、林地状况登记表》”兰庄老村坡”宗地内，本案当事人对林权证项下其他登记地块并无异议。原审判决撤销林权证中全部林地登记，认定事实有误，依法应予纠正。关于临高县政府及冯志飘所提1号调解书不具有确认土地及林地权属的法律效力、原审法院将其作为确认土地权属依据属适用法律错误的上诉理由，本院认为，1号调解书反映的是各方当事人因本案争议地权属发生争议纠纷，经协商后各方对自身权益的自愿处分，调解书证实了该林地存在权属争议的事实，并未作为确认土地所有权的依据，原审法院亦未据此作出确认土地、林地权属的相关判决。上诉人临高县政府及冯志飘的上诉理由均不成立，本院不予支持。综上，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、第三款以及第七十条第（一）项的规定，判决如下：
一、撤销海南省第二中级人民法院（2016）琼97行初173号行政判决；
二、撤销临高县人民政府颁发给冯志飘的临府林证字（2010）第001610号《林权证》项下编号×××的林权登记。
一、二审案件受理费各50元，共计100元，均由上诉人临高县人民政府负担。
本判决为终审判决。
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审判长郑怀全
审判员王华
审判员黄胜敏
法官助理夏丽君
书记员颜恺
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caseinfo=JSON.stringify({\"法院ID\":\"3239\",\"案件基本情况段原文\":\"\",\"附加原文\":\"\",\"审判程序\":\"刑罚变更\",\"案号\":\"（2017）甘29刑更309号\",\"不公开理由\":\"\",\"法院地市\":\"临夏回族自治州\",\"法院省份\":\"甘肃\",\"文本首部段落原文\":\"\",\"法院区域\":\"\",\"文书ID\":\"9dfa2079-c538-49f6-9a9e-a81b007c98eb\",\"案件名称\":\"马文明刑罚变更刑事裁定书\",\"法院名称\":\"甘肃省临夏回族自治州中级人民法院\",\"裁判要旨段原文\":\"\",\"法院区县\":\"\",\"补正文书\":\"2\",\"DocContent\":\"\",\"文书全文类型\":\"1\",\"诉讼记录段原文\":\"甘肃省高级人民法院于2009年6月29日以（2009）甘刑三复字第79号刑事裁定书认定该犯犯故意伤害罪,判处死刑,缓期二年执行，剥夺政治权利终身。2011年12月18日减为无期徒刑，剥夺政治权利终身不变；2014年12月24日减为有期徒刑19年3个月，刑期自2014年12月24日起至2034年3月23日止，剥夺政治权利改为七年。
本院于2017年9月13日立案受理临夏监狱提出的减刑建议，依法组成合议庭公开开庭进行了审理，现已审理终结\",\"判决结果段原文\":\"\",\"文本尾部原文\":\"\",\"上传日期\":\"\\\/Date(1509292800000)\\\/\",\"案件类型\":\"1\",\"诉讼参与人信息部分原文\":\"\",\"文书类型\":null,\"裁判日期\":null,\"结案方式\":null,\"效力层级\":null});$(document).attr(\"title\",\"马文明刑罚变更刑事裁定书\");$(\"#tdSource\").html(\"马文明刑罚变更刑事裁定书
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[{法规名称:\'《中华人民共和国刑法》\',Items:[{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：
（一）阻止他人重大犯罪活动的；
（二）检举监狱内外重大犯罪活动，经查证属实的；
（三）有发明创造或者重大技术革新的；
（四）在日常生产、生活中舍己救人的；
（五）在抗御自然灾害或者排除重大事故中，有突出表现的；
（六）对国家和社会有其他重大贡献的。
减刑以后实际执行的刑期不能少于下列期限：
（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；
（二）判处无期徒刑的，不能少于十三年；
（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。
\'},{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：
（一）阻止他人重大犯罪活动的；
（二）检举监狱内外重大犯罪活动，经查证属实的；
（三）有发明创造或者重大技术革新的；
（四）在日常生产、生活中舍己救人的；
（五）在抗御自然灾害或者排除重大事故中，有突出表现的；
（六）对国家和社会有其他重大贡献的。
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。
\'},{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。
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