海南省高级人民法院
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（2017）琼行终1152号
海南省高级人民法院
行政判决书
(2017)琼行终1152号
上诉人（原审第三人）韦国光，男，1965年12月19日出生，黎族，住海南省白沙黎族自治县。
被上诉人（原审原告）羊德锋，男，1962年1月23日出生，黎族，住海南省白沙黎族自治县。
原审被告白沙黎族自治县人民政府，住所地海南省白沙黎族自治县牙叉镇。
法定代表人胡翔，该县县长。
委托诉讼代理人林大进，海南法立信律师事务所律师。
委托诉讼代理人陈开拓，该县法制办主任。
上诉人韦国光因与被上诉人羊德锋及原审被告白沙黎族自治县人民政府（以下简称白沙县政府）土地行政管理一案，不服海南省第二中级人民法院（2017）琼97行初187号行政判决，向本院提起上诉。本院于2017年8月28日立案受理后，依法组成合议庭，公开审理了本案。本案现已审理终结。
原审查明，白沙县政府于2005年9月28日给韦国光颁发白沙县农地承包权（白家）第110304032号《农村土地承包经营权证》（以下简称110304032号《经营权证》）。该证项下共记载有四块承包地，其中本案争议地即”公路田”0.27亩水田，四至范围：东至德丰田，南至国安田，西至德方田，北至鱼塘边。承包期限自1999年1月1日至2027年12月31日。羊德锋认为本案争议的0.27亩水田系其承包地，一直由其进行耕作使用，白沙县政府的颁证行为没有事实根据和法律依据，侵害了其合法权益，故请求法院撤销该颁证行为。
原审另查明，韦国光于1994年将户口迁出头峰村民小组，迁入白沙黎族自治县国营邦溪农场大岭分场，转为非农业家庭户口。1995年7月，白沙黎族自治县荣邦乡高峰村委会头峰村民小组将本案争议地重新发包，羊德锋通过抽签取得该地的承包经营权，其一直使用该地至2013年，没有证据证明期间有人提出过异议。庭审中，韦国光对于羊德锋自1995年至2013年耕作使用本案争议地的事实予以认可。2013年，本案争议地被白沙县政府征收。
原审认为，本案争议焦点有两个：一是羊德锋是否为本案适格原告；二是白沙县政府给韦国光颁发110304032号《经营权证》主要证据是否确凿，适用法律是否正确以及程序是否合法。
关于第一个争议焦点，即羊德锋的主体资格问题。依照《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。”本案中，从各方当事人在庭审中相互一致的陈述来看，在本案纠纷发生前，羊德锋实际耕作管理本案争议地已有十几年之久，故白沙县政府就本案争议地给韦国光颁发110304032号《经营权证》的行政行为与羊德锋有法律上的利害关系，故羊德锋是本案适格原告，依法可以提起本案诉讼。
关于第二个争议焦点，即白沙县政府给韦国光颁发110304032号《经营权证》的合法性问题。《中华人民共和国农村土地承包法》第十五条明确规定：”家庭承包的承包方是本集体经济组织的农户。”从本案查明的事实看，韦国光在第二轮农村集体土地家庭联产承包前已将户口迁出头峰村民小组，转为非农业家庭户口，故其已不是头峰村民小组的农户，不符合家庭承包土地承包方的法定资格。而羊德锋所在的村民小组和村民委员会亦出具证明材料，证明村民小组已于1995年7月将本案争议地重新发包，羊德锋通过抽签取得该地的承包经营权。羊德锋也实际耕作管理该地已有十几年之久，没有证据证明期间第三人韦国光提出过异议。因此，白沙县政府颁发110304032号《经营权证》确认韦国光对本案争议地享有承包经营权，缺乏事实根据。白沙县政府辩称其颁发110304032号《经营权证》是对第一轮农村集体土地家庭联产承包经营权的确认，韦国光也于2005年与村集体签订了家庭承包合同。根据《中华人民共和国农村土地承包经营权证管理办法》第十二条”乡（镇）农村经营管理部门和县级以上地方人民政府农业行政主管部门在办理农村土地承包经营权证过程中应当履行下列职责：（一）查验申请人提交的有关材料；（二）就有关登记事项询问申请人；（三）如实、及时地登记有关事项；（四）需要实地查看的，应进行查验。在实地查验过程中，申请人有义务给予协助”的规定，白沙县政府在办理农村土地承包经营权证过程中对申请人提交的材料具有审查核实的义务。从白沙县政府提交的《海南省家庭承包耕地合同书》所签订的时间来看，显然是为了2005年全省统一颁发农村土地承包经营权证而制作的合同书，并非是在进行第二轮农村集体土地发包时所签订，故此时白沙县政府在颁证前负有更加严格的审查核实义务。而事实上韦国光在第二轮农村集体土地承包时就已经丧失家庭承包土地承包方的法定资格，且羊德锋所在的村民小组和村民委员会亦出具证明材料，证明上述合同书的制作是因其工作过失导致，故白沙县政府在办理农村土地承包经营权证过程中，对韦国光提交的材料并没有进行实地核实。综上，白沙县政府给韦国光颁发110304032号《经营权证》，确认其对本案争议地享有承包经营权，认定事实不清，且未尽到审查核实义务，损害了羊德锋对本案争议地享有的合法权益，故对于110304032号《经营权证》中关于本案争议地的登记内容应予撤销。依照《中华人民共和国行政诉讼法》第七十条第（一）项的规定，判决如下：撤销白沙县政府于2005年9月28日给韦国光颁发110304032号《经营权证》中”公路田”地块的登记内容；案件受理费人民币50元，由白沙县政府负担。
上诉人韦国光上诉称，一、争议地未被头峰村民小组收回重新发包；虽其本人户口已经迁出头峰村民小组，但土地承包尚未到期，其尚有承包经营权。二、白沙县政府的颁证行为程序合法，原审判决撤销颁证行为中涉案”公路田”地块的登记内容没有事实根据和法律依据。综上，请求撤销原判，依法驳回羊德锋的诉讼请求。
被上诉人羊德锋答辩称，韦国光一家均为非农业家庭户口，不具备承包涉案土地的资格。白沙县政府的颁证行为没有事实根据，程序违法。原审判决认定事实清楚，适用法律正确，判决结果并无不当，请求驳回上诉，维持原判。
原审被告白沙县政府的陈述意见与原审答辩意见一致。
二审中，各方当事人均未提交新的证据。
二审查明的事实与原审认定的事实一致。
本院认为，依据《中华人民共和国农村土地承包法》第十五条及《海南省实施<中华人民共和国农村土地承包法>办法》第十六条第一款的规定，家庭承包的承包方是本集体经济组织的农户。本案中，韦国光在第一轮土地承包时取得了”公路田”0.27亩水田，在第二轮土地承包后，韦国光虽然签订了涉案土地的承包合同，但其已将户口迁出头峰村民小组，转为非农业家庭户口，不再是头峰村民小组的农户，其不符合涉案水田家庭承包的主体资格。而1995年7月，白沙黎族自治县荣邦乡高峰村委会头峰村民小组将本案争议地重新发包，羊德锋通过抽签取得该地的承包经营权，并已实际耕作管理十几年。根据《中华人民共和国农村土地承包经营权证管理办法》第十二条的规定，乡（镇）农村经营管理部门和县级以上地方人民政府农业行政主管部门在办理农村土地承包经营权证过程中，应当查验申请人提交的有关材料；就有关登记事项询问申请人；如实、及时地登记有关事项；需要实地查看的，应进行查验。白沙县政府并未核实承包方是否具备承包资格，亦未核实涉案地块的实际使用情况，未尽到上述详细审查核实义务。综上，白沙县政府对涉案”公路田”地块的颁证登记主要证据不足，依法应予撤销。
综上，原审判决认定事实清楚，适用法律正确，判决结果并无不当。上诉人韦国光的上诉请求与理由不成立，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（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元由上诉人韦国光负担。
本判决为终审判决。
审判长朱望锋
审判员吴天月
审判员陈焱
二一七年十一月九日
书记员陈欣欣
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