海南省三亚市中级人民法院
p t ; ” > 民 事 裁 定 书
（2017）琼02民终1246号
上诉人（原审原告）：陈常权，男，1956年10月5日出生，汉族，住三亚市。
委托诉讼代理人：杨昌宏，三亚林海法律事务所法律工作者。
被上诉人（原审被告）：三亚市海棠区江林村民委员会，住所地：三亚市海棠区江林村。
法定代表人：林廷文，该村民委员会主任。
委托诉讼代理人：宁典，海南云帆律师事务所律师。
上诉人陈常权因与被上诉人三亚市海棠区江林村民委员会（以下简称江林村委会）农村土地承包合同纠纷一案，不服三亚市城郊人民法院（2017）琼0271民初3130号民事裁定，向本院提起上诉。本院于2017年8月17日立案后，依法组成合议庭审理了本案。本案现已审理终结。
陈常权上诉请求：撤销（2017）琼0271民初3130号民事裁定书，改判被上诉人支付承包金欠款556.2元给上诉人。事实和理由：第一、一审裁定依据错误。本案是采用判决解决的问题，而不属裁定处理的问题。本案的案由是土地承包金债务（欠款）纠纷，不是土地使用权确权纠纷；从上诉人开荒种植经营至口头协议履行等事实，均属实体的问题，不属程序的问题。因此，本案不能使用”裁定”处理实体纠纷。第二、上诉人的土地使用权已经下丈村民委员会于1999年确认。杨昌安作为村民委员会的法人代表于1999年代表下丈村民委员会与26户村民做工作并订立口头协议时，己经确认了26户村民的使用权和收益权，且上诉人领取了三年的承包金。按当时国务院”谁开荒、谁受益”等”四荒地”政策、作法，杨昌安确认26户村民的经营权和受益权是有法律效力的。被上诉人于2002年后拒绝支付承包金，但对欠款的数额没有异议，法院应予确认。第三、一审裁定忽视前届下丈村民委员会认可上诉人土地使用权的事实和认可效力的连续性，以现届江林村民委员会代理人在庭审上毫无事实根据而凭空提出”不认可”为依据，采用裁定驳回原告起诉，缺乏事实根据和法律依据，且适用法律错误。综上，一审裁定驳回上诉人的起诉，缺乏事实根据和法律依据，适用法律错误。请求撤销一审裁定，支持上诉人的诉求。
江林村民委员会辩称，第一、本案为农村土地承包合同纠纷，上诉人与本案无利害关系，原告主体不适。第二、涉案土地是村民委员会的集体土地，《土地承包合同书》的当事人是村民委员会，不是上诉人。第三、涉案土地原为开荒地，依法不具有承包经营权，也不能继承。第四、被上诉人也从未将涉案土地承包给上诉人，上诉人主张土地承包金又没有任何土地承包经营权证明，应该先向政府行政部门申请土地使用权确权，才能对涉案土地具有承包经营权。综上，上诉人的起诉不符合《中华人民共和国民事诉讼法》第一百一十九条”起诉必须符合下列条件：（一）原告是与本案有直接利害关系的公民、法人和其他组织”之规定，一审裁定驳回起诉，认定事实清楚，适用法律正确，上诉人的上诉请求没有事实和法律依据，二审法院应依法驳回上诉。
陈常权向一审法院起诉请求：判令被告江林村民委员会支付原告土地承包金556.2元。
一审法院认定事实：原告陈常权系三亚市原林旺镇下丈村民委员会（现三亚市海棠区江林村民委员会）第一小组村民。二十世纪八十年代初，原告自行在村民委员会单塘附近开垦荒地1.8亩种植番薯等作物。1999年，海南裕昌集团有限公司欲向下丈村民委员会（现江林村民委员会）整块承包单塘坡附近211.799亩坡地用于建设优良椰子种苗基地。这整块坡地中包含原告开荒地1.8亩及其余25位村民开荒地。经时任村民委员会书记杨昌安与村民做思想工作，未经民主议定程序，即以村民委员会名义与原告等26户村民达成口头协议，即将包括原告陈常权开荒地1.8亩在内的共26户村民开荒地统一以由村民委员会名义发包给海南裕昌公司，青苗补偿费按每亩450元计，裕昌公司一次性支付给村民委员会后由村民委员会支付给被用地村民，土地承包金也是由裕昌公司支付给村民委员会后，再由村民委员会按承包金的20％发放给被用地村民。随后，裕昌公司与三亚市林旺镇下丈村民委员会签订了《土地承包合同书》，合同约定裕昌公司向下丈村民委员会承包土地211.799亩用于建立优良椰子种苗基地，承包期限为五十年，即1999年10月20日起至2049年10月20日止，合同还约定了土地承包金的缴纳方式，明确规定合同签订生效之日起二个月内裕昌公司向下丈村民委员会缴纳第一年至第三年的承包金（即1999至2002年）。合同还约定了其他事项。合同经当时的三亚市林旺镇政府确认同意。合同签订后裕昌公司一次性向村民委员会支付了1999年至2002年共三年土地承包金，村民委员会也向包括原告陈常权在内的26户村民发放土地承包金，其中陈常权领取了三年共计108元。但2002年后，村民委员会一直没有再给村民发放承包金，经原告等村民追讨，村民委员会均以不清楚等理由拒绝发放承包金。故原告陈常权等24户村民以村民委员会侵害其土地承包权益为由诉至法院，要求法院判如所请。一审法院认为，本案争议的焦点问题有二。首先，是否存在原告1.8亩的开荒地与其他村民的开荒地由村民委员会统一发包给海南裕昌集团有限公司、并且原告已领取三年的土地收益款108元的事实。二、村民委员会与村民的口头约定是否有法律效力。关于焦点一，本案原告陈述与庭审证人即承包经历者杨昌安、王卷孝的证言基本一致。作为村民委员会与海南裕昌集团有限公司承包土地的亲身经历者，杨昌安、王卷孝的证言具有很强的证明效力，其所做的证言在没有明显矛盾的情况下，其证明效力应予以采信。其次，原告提供的《土地承包合同书》（包含宗地图）、（三亚市林旺镇）下丈村民委员会第一小组单塘农户面积表，与原告陈述及证人证言相互吻合。故以上的证据已形成证据链，足以证明存在原告1.8亩的开荒地与其他村民的开荒地由村民委员会统一发包给海南裕昌集团有限公司的事实。关于焦点二，村民开荒地，并不当然等同于承包地，原告诉求被告支付土地承包金的前提必须是确认土地使用权的事实才具有的权利，原告主张涉案土地由其开荒、使用，并据此主张土地承包金，但被告对此不予认可，故本案争议焦点实属土地使用权的确权问题，在当事人协商未果的情况下，应由人民政府处理。综上，依照《中华人民共和国土地管理法》第十六条、《最高人民法院关于审理涉及农村土地承包纠纷案件适用法律问题的解释》第一条第二款及《中华人民共和国民事诉讼法》第一百一十九条第（四）项之规定，裁定驳回原告陈常权的起诉。
本院审理查明，陈常权于2017年4月10日以其享有涉案土地使用权为由，向一审法院起诉要求判令江林村委会支付土地承包金556.2元。江林村委会在诉讼中对该土地使用权提出异议，主张陈常权不享有涉案土地使用权，涉案土地使用权属江林村委会所有，不同意将土地承包金分给陈常权。一审裁定驳回陈常权的起诉，陈常权不服上诉至本院。故本院仅对本案进行程序审查，不对一审法院认定事实进行审查。
本院经审查认为，本案的争议焦点是：1、涉案土地使用权是否存在争议；2、涉案诉讼请求是否应以解决土地使用权争议为前提。
关于涉案土地使用权是否存在争议的问题。从当事人诉讼的事实看，陈常权主张对涉案土地享有使用权，而江林村委会主张涉案土地的使用权属江林村委会所有，陈常权没有享有涉案土地的使用权，显属双方对涉案土地使用权存在争议。陈常权所主张的以前江林村委会对涉案土地使用权不存在争议的事实，不能对抗现诉讼中双方对涉案土地使用权存在争议的事实。
关于涉案诉讼请求是否应以解决土地使用权争议为前提。本案中，陈常权主张江林村委会向其支付涉案土地的土地承包金，该诉讼主张的前提必须是涉案土地使用权属其所有的情况下才享有的权利，现涉案土地使用权存在争议，依照《中华人民共和国土地管理法》第十六条及《最高人民法院关于审理涉及农村土地承包纠纷案件适用法律问题的解释》第一条第二款规定，陈常权应当在涉案土地使用权争议由人民政府处理解决后，才能提起涉案诉讼。
依照《诉讼费交纳办法》第八条第（二）、（三）项规定，驳回起诉的案件，不应收取案件受理费，一审法院收取诉讼费不妥，应予纠正。
综上所述，陈常权上诉的理由不能成立，本院不予支持。原审裁定认定事实清楚，适用法律正确，本院予以维持。依照《中华人民共和国民事诉讼法》第一百七十条第一款第一项、第一百七十一条规定，裁定如下：
驳回上诉，维持原裁定。
一、二审案件受理费75元（上诉人陈常权已预缴），退还给上诉人陈常权。
本裁定为终审裁定。
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审判长李宝鹏
审判员左家锋
审判员林元贵
二〇一七年九月十三日
书记员邢华云
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