海南省海口市中级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼01行终186号
上诉人（原审被告）海口市秀英区西秀镇人民政府，住所地海口市秀英区225国道粤海大道与海榆西线交汇处。
法定代表人冼祥盛，镇长。
委托代理人唐富国，海口市秀英区西秀法律事务所法律工作者。
委托代理人伍卓劭，海口市秀英区西秀镇人民政府司法所所长。
被上诉人（原审原告）芩东兰，女，1944年6月6日出生，汉族，住海口市，公民身份号码×××。
被上诉人（原审原告）林诗洪，男，1978年6月24日出生，汉族，住海口市，公民身份号码×××。
被上诉人（原审原告）林诗灿，男，1982年11月15日出生，汉族，住海口市，公民身份号码×××。
被上诉人（原审原告）林伟，男，1970年9月11日出生，汉族，住海口市，公民身份号码×××。
以上四位被上诉人共同委托代理人潘兵，海南肖明德律师事务所律师。
上诉人海口市秀英区西秀镇人民政府（以下简称西秀镇政府）因与被上诉人芩东兰、林诗洪、林诗灿、林伟行政不作为纠纷一案，不服海口市秀英区人民法院（2017）琼0105行初67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。上诉人西秀镇政府的委托代理人唐富国、伍卓劭，被上诉人芩东兰、林诗洪、林诗灿、林伟及其委托代理人潘兵到庭参加诉讼，现已审理终结。
原审判决查明：涉案土地位于丰盈小学、海榆西线北侧，文章村路口西侧。芩东兰、林诗洪、林诗灿、林伟系海口市西秀镇丰盈村委会文章村村民。1981年经村集体同意在涉案土地上修建一间瓦房及简易棚居住使用。1994年拆掉凉棚，在原址上盖了两间瓦房。2003年瓦房倒塌后又重建一间平房。2013年在平房北侧修建了一段围墙。2015年，芩东兰、林诗洪、林诗灿、林伟在该地上围墙南侧挖地基准备建房时被案外人王某阻止，双方发生斗殴事件。随后，芩东兰、林诗洪、林诗灿、林伟向西秀镇政府提出解决涉案土地纠纷的申请，2016年5月25日，西秀镇政府作出2号意见书，认定：1、申请人指界测量的241.82平方米地块中靠南175平方米土地使用权归申请人（芩东兰、林诗洪、林诗灿、林伟）所有，四至界以国土测绘院出具的坐标图为准；2、申请人如需要在该地上建房，必须依法报建审批后才能施工；3、该地块靠北剩余的66.82平方米土地使用权归文章村民小组集体所有。芩东兰、林诗洪、林诗灿、林伟持有该意见书办理相关建房手续时，有关部门均以2号意见书不是决定书为由拒绝为其办理手续。芩东兰、林诗洪、林诗灿、林伟在多次要求西秀镇政府更正或重新作出处理决定未果，遂向秀英区法院提起行政诉讼。
原审判决认为：本案当事人争议的焦点是西秀镇政府的行为是否构成行政不作为。《中华人民共和国土地管理法》第十六条规定：土地所有权和使用权争议，由当事人协商解决；协商不成的，由人民政府处理。单位之间的争议，由县级以上人民政府处理。个人之间、个人与单位之间的争议，由乡镇人民政府或者县级以上人民政府处理。因此，当芩东兰、林诗洪、林诗灿、林伟申请西秀镇政府对涉案土地使用权纠纷作出处理决定时，西秀镇政府应依法履行法定职责，但西秀镇政府至今未作出处理决定书，其行为已构成行政不作为。且纠纷涉及到当事人的切身利益，如不及时妥善处理，将会导致矛盾激化，不利于社会和谐与稳定。因此，根据《中华人民共和国行政诉讼法》第七十二条之规定，判决限海口市秀英区西秀镇人民政府于判决生效之日起30日内对芩东兰、林诗洪、林诗灿、林伟与案外人王某之间争议的位于丰盈小学、海榆西线北侧、文章村路口西侧的土地使用权纠纷作出处理决定书。一审诉讼费人民币50元，由海口市秀英区西秀镇人民政府负担。
上诉人西秀镇政府上诉称：原审认定事实不清，适用法律错误。本案中，四位被上诉人的土地纠纷，其土地使用权用途为住宅用地，但其未依法取得宅基地使用权。对农村宅基地的确权，根据《中华人民共和国土地管理法》第5条，国务院土地行政主管部门统一负责全国土地的管理和监督工作。县级以上地方人民政府土地行政主管部门的设置及其职责，由省、自治区、直辖市人民政府根据国务院有关规定确定。第62条，农村村民一户只能拥有一处宅基地，其宅基地的面积不得超过省、自治区、直辖市规定的标准。农村村民住宅用地，经乡（镇）人民政府审核，由县级人民政府批准。海南省集体建设用地（农用地、商住地、工业地）管理办法(试行)（琼府办【2013】60号）第3条，本省行政区域内集体建设用地的取得、使用、流转等管理，适用本办法。第11条，农村村民建住宅应当依法取得宅基地使用权，不得擅自占用土地建住宅。《海口市农村宅基地管理办法》第18条，农村宅基地按下列程序审批：(一)集体土地所有权代表行使人应当自受理申请之日起10日内，张榜公布申请人名单、申请理由、申请用地位置和面积。张榜公布期15日，公布期满无异议的，经依法召开会议讨论通过后，由村民委员会签署审核意见报镇人民政府审查;(二)镇人民政府审查同意的，报区人民政府审核;(三)区人民政府审核同意的，报市人民政府依法批准。市土地行政主管部门受市人民政府的委托承办市人民政府审批农村宅基地的具体工作。第19条，受理申请的市、区或镇人民政府应当分别自收到有关申请材料之日起15个工作日内作出是否同意或批准的意见。市、区或镇人民政府不予同意或批准的，应当作出书面决定，并告知申请人不予同意或批准的理由。第38条，本办法具体应用中的问题由市土地行政主管部门负责解释。第39条，本办法自2007年8月1日起施行。因此，依据上述法律、法规及相关文件规定，上诉人西秀镇政府对宅基地使用权纠纷作出行政处理决定书没有法律依据。综上，请求二审法院撤销一审判决并依法改判；一、二审诉讼费由被上诉人承担。
被上诉人芩东兰、林诗洪、林诗灿、林伟答辩称：原审判决认定事实清楚，适用法律正确，上诉人的上诉理由不成立，请求法院依法驳回其上诉，维持原判。
上诉人提起上诉后，原审法院已将原审判决所列证据随卷移送本院。二审期间，各方当事人均未提交新证据。
本院经审理查明的事实与一审判决认定的事实一致，本院予以确认。
本院认为：根据《中华人民共和国土地管理法》第十六条规定：土地所有权和使用权争议，由当事人协商解决；协商不成的，由人民政府处理。单位之间的争议，由县级以上人民政府处理。个人之间、个人与单位之间的争议，由乡级人民政府或者县级以上人民政府处理。乡级以上人民政府具有对土地使用权权属争议进行处理的法定职责。本案中，芩东兰、林诗洪、林诗灿、林伟与案外人王某就海榆西线北侧、文章村路口西侧的土地使用权之间的争议向西秀镇政府提出申请，西秀镇政府应当依法履行法定职责，就土地权属争议下达处理决定。而其在2016年5月25日作出了2号处理意见书，认定：1、申请人指界测量的241.82平方米地块中靠南175平方米土地使用权归申请人（芩东兰、林诗洪、林诗灿、林伟）所有，四至界以国土测绘院出具的坐标图为准；2、申请人如需要在该地上建房，必须依法报建审批后才能施工；3、该地块靠北剩余的66.82平方米土地使用权归文章村民小组集体所有。该处理意见书对于被上诉人芩东兰、林诗洪、林诗灿、林伟与案外人王某争议的土地使用权纠纷作出了确认处理，但因其出具的文书形式为意见书，不符合要求，相关部门无法以该意见书为被上诉人芩东兰、林诗洪、林诗灿、林伟办理相关手续。后被上诉人芩东兰、林诗洪、林诗灿、林伟多次就此诉求向上诉人西秀镇政府要求对诉争的土地使用权纠纷进行更正或重新作出处理决定书，上诉人西秀镇政府一直未予处理，不积极履行其法定职责，显属行政不作为，应当依法予以纠正。
综上，上诉人海口市秀英区西秀镇人民政府上诉不成立，本院依法不予支持。一审判决认定事实清楚，适用法律正确，本院依法应予维持。依照《中华人民共和国行政诉讼法》八十九条第一款第（一）项之规定，判决如下：
驳回上诉，维持原判。
本案二审受理费人民币50元，由上诉人海口市秀英区西秀镇人民政府负担。
本判决为终审判决。
审判长黄勇
审判员钟山
审判员吴茜
书记员杨聪
附：本判决适用的相关法律依据
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《中华人民共和国劳动争议调解仲裁法》第四十九条用人单位有证据证明本法第四十七条规定的仲裁裁决有下列情形之一，可以自收到仲裁裁决书之日起三十日内向劳动争议仲裁委员会所在地的中级人民法院申请撤销裁决：（一）适用法律、法规确有错误的；（二）劳动争议仲裁委员会无管辖权的；（三）违反法定程序的；（四）裁决所根据的证据是伪造的；（五）对方当事人隐瞒了足以影响公正裁决的证据的；（六）仲裁员在仲裁该案时有索贿受贿、徇私舞弊、枉法裁决行为的。人民法院经组成合议庭审查核实裁决有前款规定情形之一的，应当裁定撤销。仲裁裁决被人民法院裁定撤销的，当事人可以自收到裁定书之日起十五日内就该劳动争议事项向人民法院提起诉讼\",\"审判程序\":\"其他\",\"案号\":\"（2017）沪01民特458号\",\"不公开理由\":\"\",\"法院地市\":\"上海市第一中级人民法院\",\"法院省份\":\"上海\",\"文本首部段落原文\":\"\",\"法院区域\":\"\",\"文书ID\":\"6d21eb5e-d462-4848-bfc4-a81f009bf94c\",\"案件名称\":\"上海嫣雨文化传媒有限公司诉胡佳奕申请撤销仲裁裁决一案一审民事裁定书\",\"法院名称\":\"上海市第一中级人民法院\",\"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\":\"申请人上海嫣雨文化传媒有限公司（以下简称嫣雨公司）与被申请人胡佳弈申请撤销仲裁裁决一案，本院于2017年8月1日立案后进行了审查。现已审查终结\",\"判决结果段原文\":\"\",\"文本尾部原文\":\"\",\"上传日期\":\"\\\/Date(1509638400000)\\\/\",\"案件类型\":\"2\",\"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});$(document).attr(\"title\",\"上海嫣雨文化传媒有限公司诉胡佳奕申请撤销仲裁裁决一案一审民事裁定书\");$(\"#tdSource\").html(\"上海嫣雨文化传媒有限公司诉胡佳奕申请撤销仲裁裁决一案一审民事裁定书
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用人单位有证据证明本法第四十七条规定的仲裁裁决有下列情形之一，可以自收到仲裁裁决书之日起三十日内向劳动争议仲裁委员会所在地的中级人民法院申请撤销裁决：
（一）适用法律、法规确有错误的；
（二）劳动争议仲裁委员会无管辖权的；
（三）违反法定程序的；
（四）裁决所根据的证据是伪造的；
（五）对方当事人隐瞒了足以影响公正裁决的证据的；
（六）仲裁员在仲裁该案时有索贿受贿、徇私舞弊、枉法裁决行为的。
人民法院经组成合议庭审查核实裁决有前款规定情形之一的，应当裁定撤销。
仲裁裁决被人民法院裁定撤销的，当事人可以自收到裁定书之日起十五日内就该劳动争议事项向人民法院提起诉讼。
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