海南省高级人民法院
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（2017）琼行终158号
海南省高级人民法院
行政判决书
（2017）琼行终158号
上诉人（原审原告）吴承文，男，汉族，1930年9月17日出生，住海南省澄迈县老城镇坡脑村民委员会大连村。
上诉人（原审原告）陈道信，男，汉族，1957年9月20日出生，住海南省澄迈县老城镇坡脑村民委员会大连村。
上述两位上诉人的共同委托代理人王康忠，海南海地律师事务所律师。
被上诉人（原审被告）澄迈县人民政府，住所地澄迈县金江镇文化北路108号。
法定代表人吉兆民，该县县长。
委托代理人杜聪，海南法立信律师事务所律师。
委托代理人吴淑梁，澄迈县国土资源局科员。
原审第三人澄迈县老城镇富豪村民委员会青岭村民小组。
法定代表人郑天日，该组组长。
上诉人吴承文、陈道信因其诉被上诉人澄迈县人民政府（以下简称澄迈县政府）及原审第三人澄迈县老城镇富豪村民委员会青岭村民小组（以下简称青岭村民小组）集体土地行政登记一案，不服海南省第一中级人民法院(2016)琼96行初214号行政判决，向本院提起上诉。本院依法组成合议庭，对本案进行审理，现已审理终结。
本案被诉行政行为：澄迈县政府于2004年12月5日给青岭村民小组颁发白莲集有（2004）第0200号《集体土地所有证》（以下简称第0200号集体土地证），将总面积为3739.11㎡（合5.6亩）的绳路园地确认为青岭村民小组集体所有。
原审查明，1998年第二轮土地承包时，青岭村民小组向村民郑福成发包一块名称为藤路的土地，面积1亩，四至为东至大连、南至大连、西至大连、北至大连。吴承文承包有一块名称为文度的土地，发包方为澄迈县老城镇坡脑村民委员会大连村民小组(以下简称大连村民小组)，面积1.2亩，四至为东至贤秀、南至沟、西至道青、北至先圣；陈道信在第二轮土地承包时承包有一块名称为文度的土地，发包方为大连村民小组，面积0.5亩，四至为东至承文、南至路、西至承开、北至荒。2004年3月11日，澄迈县政府组织大连村民小组和青岭村民小组对涉案地进行权属界线核定，在土地权属界线核定书中还注有：”该宗地为青岭村民小组在大连村民小组权属界线内的插花地”。大连村民小组及时任法定代表人吴育军、青岭村民小组及时任法定代表人郑福山均在该土地权属界线核定书中盖章并签名确认。2004年9月27日，澄迈县政府将涉案地登记的审核结果在青岭村民小组进行公告，澄迈县老城镇人民政府作为见证单位在该公告上盖章确认。2004年12月20日，澄迈县国土环境资源局依法填写土地登记发证送审表，经澄迈县政府审核同意；2004年12月5日，向青岭村民小组颁发第0200号集体土地证，将总面积为3739.11㎡的绳路园地确认为青岭村民小组集体所有。2006年，因青岭村民小组村民郑福成耕种涉案地发生纠纷，现涉案地无人耕种。吴承文、陈道信诉称名为文度的地块，就在第0200号集体土地证内，二人于2016年经调查才知道，澄迈县政府就涉案地已于2004年向青岭村民小组登记发证。2016年10月21日，吴承文、陈道信向原审法院提起行政诉讼，请求撤销第0200号集体土地证。
另查明，2016年7月18日，澄迈县国土资源局向大连村民小组作出《关于老城镇坡脑村民委员会大连村民小组申请事项的答复》，内容有：”2016年7月14日上午，经你单位现场指界，勘测的土地面积为5.3036亩，其中5.1027亩土地坐落在第0200号集体土地证（土地所有权人为青岭村民小组）范围内，0.2009亩土地坐落在白莲集有（2004）第0247号《集体土地所有证》（土地所有权人为大连村民小组）范围内。2004年3月11日，大连村民小组和青岭村民小组法人代表在土地权属界线核定书（即大连村民小组和青岭村民小组土地权属界线核定书）上签章确定了上述5.1027亩土地属青岭村民小组所有，澄迈县政府于2004年12月5日给青岭村民小组颁发了第0200号集体土地证。因此，根据《中华人民共和国土地管理法》第13条之规定，你村民小组的主张不予支持，若有异议，建议你村民小组通过司法途径解决”。
原审认为，本案中，澄迈县政府的颁证行为经过地籍调查，土地权属界线核定，权属审核、注册登记及颁证等程序。在土地权属界线核定书中有大连村民小组及时任法定代表人吴育军、青岭村民小组及时任法定代表人郑福山盖章及签名，并注明：”该宗地为青岭村民小组在大连村民小组权属界线内的插花地”。吴承文、陈道信诉称名称为文度的地块虽有四至范围，但没有具体的坐标点，对涉案地二人现也没有进行耕种；在2004年进行土地权属界线核定时，吴承文、陈道信所属大连村民小组对于该地为青岭村民小组的插花地也是盖章签名予以认可的；而且本案澄迈县政府颁发的是集体土地所有权证，对吴承文、陈道信的个人承包经营权并不产生直接影响。因此，吴承文、陈道信主张涉案地所有权属于二人所在的大连村民小组所有，证据不充分，原审法院不予采信。综上，澄迈县政府本案的颁证行为事实清楚，证据确凿，适用法律、法规正确，符合法定程序，没有侵害吴承文、陈道信的合法权益。吴承文、陈道信的诉求证据不足，原审法院不予支持。依照《中华人民共和国行政诉讼法》第六十九条之规定，判决：驳回吴承文、陈道信的诉讼请求。案件受理费50元，由吴承文、陈道信负担。
上诉人吴承文、陈道信上诉称，一、原审判决存在采信认定证据错误。二人认为，其提供的承包耕地手册、承包经营权证等证据，综合其他证据，足以证实文度即本案争议地；证人吴育军对争议地四至不清，误认为争议地属青岭村民小组，且双方未到现场指界；二人另提供了原始权源手册。原审判决对以上证据不予采信，是错误的。二、澄迈县政府颁证土地权源不足。在诉争双方均拥有土地经营权的情况下，查明权属的主要方法是查明土地历史。解放后至八十年，争议地均由吴承文、陈道信所在大连村民小组使用，而青岭村民小组根本无法说清土地来源，表明青岭村民小组土地权源依据不足。三、原审判决结果错误。由于原审判决对吴承文、陈道信的关键证据不予采信，澄迈县政府凭吴育军错误签名颁证，没有深入调查核实土地权属情况，颁证走过场，原审判决支持错误的颁证行为。综上，吴承文、陈道信请求本院撤销原审判决，支持其原审诉讼请求。
被上诉人澄迈县政府答辩称，一、澄迈县政府颁发第0200号集体土地证认定事实清楚，程序合法。颁证前，澄迈县国土环境资源局工作人员组织相关权属单位到实地核定土地权属界线，填写土地权属界线核定书、绘制附图，指界人在核定书上签字盖印，编制界线核定图等。经公示无异议后，澄迈县政府审批发证，符合土地登记的相关规定。二、原审判决证据采信正确。吴承文、陈道信未提供其他证据证明文度的地颁证给青岭村民小组，且无证据证明文度与涉案地为同一块地，颁证行为未侵犯二人合法权益。吴承文、陈道信提供的证明书与吴育军的证言相矛盾，原审法院不予采信符合法律规定；二人提供的原始权源手册资料无政府部门印章，缺乏公信力，无法证明原始权源事实。综上，澄迈县政府请求本院驳回吴承文、陈道信的上诉请求。
原审第三人青岭村民小组述称其意见与澄迈县政府答辩意见一致。
本院二审审理期间，吴承文、陈道信为证实其上诉主张，向本院提交了坡脑村民委员会于2017年3月28日出具的证明及大连村民小组与吴先圣等人于2017年3月29日共同出具的关于大连村文度岭土地的证明。本院认为，吴承文、陈道信提交的两份证明不属于《最高人民法院关于行政诉讼证据若干问题的规定》第五十二条规定的新证据，本院不予接纳。
本院查明的事实与原审判决认定的事实一致，本院予以确认。
本院认为，本案争议焦点是：澄迈县政府颁发第0200号集体土地证事实是否清楚，适用法律法规是否正确，是否符合法定程序，是否侵害吴承文、陈道信的合法权益。
《土地登记规则》第七条规定，初始土地登记程序为：1.申报；2.地籍调查；3.权属审核；4.注册登记；5.颁发土地证书。澄迈县政府颁发本案第0200号集体土地证过程中，经过权利人土地登记申请、地籍调查、权属审核、土地权属界线核定、公告征询异议、注册登记及颁证等法定程序。澄迈县政府在颁证过程中制作的土地权属界线核定书中有大连村民小组及时任法定代表人吴育军、青岭村民小组及时任法定代表人郑福山盖章及签名，并注明：”该宗地为青岭村民小组在大连村民小组权属界线内的插花地”。在公告征询异议期间无人提出异议。且青岭村民小组提供证据证实其于1998年将涉案土地发包给其村民郑福成使用，其承包证上载明”藤路”地块四至均为大连（村民小组），与前述土地权属界线核定书中描述为插花地的事实相互印证。2006年郑福成在耕种涉案土地时与案外人发生纠纷，也证明青岭村民小组使用涉案土地的事实。因此，澄迈县政府颁发第0200号集体土地证事实清楚、程序合法。
吴承文、陈道信主张第0200号集体土地证中5.3036亩土地为大连村民小组发包给其使用的承包地，澄迈县政府给青岭村民小组颁发第0200号集体土地证侵害其承包经营权。本院认为，吴承文、陈道信持有的承包证上的名为”文度”的地块虽有四至范围，但无法确定具体位置，且其认可文度为包括涉案地块在内的周边大片土地的总称，因此其无法证明该承包证上的”文度”地块就是涉案地块。而且吴承文、陈道信未提供充分证据证明其对涉案地的历史使用情况。
综上，吴承文、陈道信的上诉请求缺乏事实根据和法律依据，依法应予驳回。原审判决驳回吴承文、陈道信的诉讼请求认定事实清楚，适用法律正确，依法应予维持。依照《中华人民共和国行政诉讼法》第八十九条第一款第（一）项的规定，判决如下：
驳回上诉，维持原判。
二审案件受理费50元，由上诉人吴承文、陈道信负担。
本判决为终审判决。
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审判长麻红丽
审判员朱望锋
审判员陈焱
书记员王洪玉附：本判决适用的相关法律依据
《中华人民共和国行政诉讼法》
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