海南省高级人民法院
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（2017）琼行终157号
海南省高级人民法院
行政判决书
（2017）琼行终157号
上诉人（原审原告）文昌市翁田镇堆头村民委员会玉茂山东村民小组。
法定代表人王康军，该村民小组组长。
委托代理人符阳，海南颍川律师事务所律师。
被上诉人（原审被告）文昌市人民政府，住所地文昌市清澜开发区市政府大院。
法定代表人王晓桥，该市市长。
委托代理人陈廷云，文昌市人民政府法制办公室工作人员。
委托代理人伍一叶，海南外经律师事务所律师。
被上诉人（原审被告）海南省人民政府，住所地海口市国兴大道9号。
法定代表人沈晓明，代省长。
委托代理人何乾东，海南省人民政府法制办公室法律事务处副处长。
原审第三人文昌市翁田镇堆头村民委员会玉茂山中村民小组。
法定代表人王奋，该村民小组组长。
原审第三人文昌市翁田镇堆头村民委员会玉茂山西村民小组。
法定代表人王康杨，该村民小组组长。
上诉人文昌市翁田镇堆头村民委员会玉茂山东××村）因其诉被上诉人文昌市人民政府（以下简称文昌市政府）、海南省人民政府（以下简称省政府）及原审第三人文昌市翁田镇堆头村民委员会玉茂山中村民小组、文昌市翁田镇堆头村民委员会玉茂山西村小组（以下简称玉茂山中、山西村小组）土地行政登记及行政复议一案，不服海南省第一中级人民法院（2016）琼96行初203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：文昌市政府于2005年1月12日给玉茂山中、山西村小组颁发了文集有（2005）第×××A、B号《集体土地所有证》（以下简称149号土地证），将总面积124.0269公顷（约1860.4亩）的共有地登记至两村民小组名下。玉茂山东村小组对上述颁证行为不服，向省政府申请行政复议。省政府于2016年9月23日作出琼府复决[2016]2号行政复议决定（以下简称2号复议决定），维持了文昌市政府的上述颁证行为。
原审查明，涉案土地位于文昌市××镇委会，面积为124.0269公顷（约1860.4亩）。2003年10月27日，玉茂山中、山西村小组共同申请涉案土地登记。文昌市翁田镇人民政府为其出具了《土地权源证明》。2003年10月27日至31日，文昌市政府组织涉案土地的相邻单位进行现场指界，参加指界的各单位均在相关《土地权属界线核定书》上签名并盖章。文昌市政府据此制作了《宗地地类及界址点成果表》《农村地籍调查表》和《土地宗地图》，确定了涉案土地的四至面积，并对涉案土地建立了《土地登记卡》。之后，文昌市政府就涉案土地的登记情况张贴了征询异议公告。在公告无异议后，文昌市政府于2005年1月12日为玉茂山中、山西村小组颁发了149号土地证，为区别持证人该证分为A、B两证，两证登记的权利人、土地四至、面积等内容一致。其中，玉茂山中村小组持有A证，玉茂山西村小组持有B证。玉茂山东村小组主张的争议地位于涉案土地的L2与L3界线连接处附近，面积约30亩。2015年8月，因文昌市政府修建公路征收部分涉案土地而引发纠纷。
2015年12月16日，玉茂山东村小组向省政府申请行政复议，请求撤销149号土地证。省政府依法受理了复议申请。复议期间，玉茂山东村小组提出文昌市政府提供的《土地权属界线核定书》中其村小组原法定代表人”王安美”的签名并非本人所签，并申请笔迹鉴定，但一直未办理相关鉴定事宜。2016年7月18日，省政府法制办公室向玉茂山东村小组作出《关于办理申请笔迹鉴定事项的通知》并予以送达，要求其于2016年7月22日前办理相关鉴定事宜，逾期视为放弃鉴定申请。但玉茂山东村小组收到该通知后，一直未按要求办理鉴定事宜。省政府遂于2016年9月23日作出2号复议决定，维持了149号土地证。玉茂山东村小组不服，提起本案行政诉讼，请求撤销149号土地证和2号复议决定。
原审认为，玉茂林业局2016年颁发的两份《林木采伐许可证》和《出售林木协议书》证明其对争议地享有权属。但上述证据无法确认证据中所涉林木在涉案土地范围内，并且玉茂山东村小组提供的上述证据只能证明地上林木的权属，无法证明林木范围内的土地所有权归其所有。玉茂山东村小组也未提供其他合法有效证据证明其对涉案土地的全部或部分享有所有权，故对其该项主张，不予支持。文昌市政府在受理玉茂山中、山西村小组的土地登记申请后，依法组织各相邻单位进行了现场指界，并形成《土地权属界线核定书》，包括玉茂山东村小组在内的各单位均在相关核定书上签名并盖章。文昌市政府据此制作了《宗地地类及界址点成果表》《农村地籍调查表》和《土地宗地图》，建立了《土地登记卡》，确定了涉案土地的四至范围和面积。文昌市政府颁发149号集体土地证认定事实清楚，程序合法。玉茂山东村小组提出《土地权属界线核定书》中其原法定代表人”王安美”的签名并非亲笔签名，但并未提供证据予以证明，且其在复议程序中申请笔迹鉴定后无故不办理鉴定手续，故对玉茂山东村小组的该项主张不予采纳。综上所述，文昌市政府颁发149号土地证认定事实清楚，证据确凿，程序合法。省政府作出维持149号土地证的复议决定，认定事实清楚，程序合法。玉茂山东村小组的诉讼请求和理由不能成立，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，判决驳回玉茂山东村小组的诉讼请求。案件受理费50元，由玉茂山东村小组负担。
玉茂山东村小组上诉请求：一、撤销原审判决；二、撤销149号土地证；三、撤销2号复议决定。事实与理由：一、原审判决错误认定文昌市政府就涉案土地张贴了征询异议公告。文昌市政府提交的证据6无法证明公告的事实，玉茂山东村小组对该证据的真实性有异议，故被诉颁证行为程序违法。二、原审判决错误认定玉茂山东村小组提交的《林木采伐许可证》《出售林木协议书》无法证明所涉林木位于涉案土地范围内和林木范围内土地的权属。上述证据与现场砍伐照片是相关联的，原审判决既然认定现场砍伐照片在涉案土地范围内，那么《林木采伐许可证》所涉林木也应在涉案土地范围内。《林木采伐许可证》有明确的林木位置坐标，可以比对出所涉林木是否在涉案土地范围内。另外，既然林木所有权归玉茂山东村小组享有，那么林木范围内的土地所有权理所当然也归玉茂山东村小组享有。这也证明《土地权源证明》不符合客观事实，应不予采纳。
文昌市政府辩称，一、文昌市政府颁发149号土地证认定事实清楚，程序合法，适用法律正确。在2003年-2004年全省农村集体土地确权期间，玉茂山中、山西村小组就涉案土地申请登记，文昌市国土资源局（以下简称文昌国土局）依法对涉案土地的权属进行调查，并依法召集相邻用地单位到进行现场指界，包括玉茂山东村小组在内的各相邻单位依据各自土地的使用情况确定了颁证宗地的界址点及界线走向，并在《土地权属界线核定书》上签章确认。文昌国土局据此确定了涉案土地的四至面积，并在涉案土地所属的基层土地管理部门及文昌市翁田镇人民政府出具《土地权源证明》，证明涉案土地长期由玉茂山中、山西村小组管理使用的情况下，文昌国土局经对涉案土地的权属、面积、地籍情况进行全面审核后，认为涉案土地的所有权归属玉茂山中、山西村小组共有。而后，就该地的四至、面积及权属情况进行了征询异议公告，公告期间无人对涉案土地的四至和权属等情况提出异议。文昌国土局经调查核实后作出了准予登记的审核意见，文昌市政府经审核后向玉茂山中、山西村小组颁发了149号土地证，该颁证行为并无违法之处。二、玉茂山东村小组关于颁证的公告程序违法的上诉理由不成立。在颁证前，文昌国土局已就涉案宗地的四至、面积及权属等情况公告征询异议，在无人提出异议的情形下才进行颁证的，公告程序符合法律规定。因公告行为属于户外张贴行为，因技术等因素导致公告照片不清晰，属于固定证据存在瑕疵，但不能据此认定未公告或公告程序违法。另外，玉茂山东村小组在颁证前已对土地界线进行了确认，且其亦未就争议地申请登记，故公告程序的瑕疵不足以认定被诉颁证行为违法。三、玉茂山东村小组提交的《林木采伐许可证》不足以证明其对争议地享有权属。该《林木采伐许可证》无法证明与争议地有关联。另外，林权包括林木所有权及使用权、林地的所有权及使用权，林权中除林地所有权之外的其他权属可通过承包、转让等方式取得。而林业部门在颁发采伐许可证时，仅需对林木的所有权及使用权进行审查，不能对林地的所有权进行确认及审查。据此，即使《林木采伐许可证》与争议地有关联，仅能认定林木与玉茂山东村小组有关联，而不能据此否定其原法定代表人于2003年现场指界的行为，更不能认定其对争议地享有权属。综上，原审判决认定事实清楚、程序合法、适用法律正确。玉茂山东村小组的上诉请求及理由不成立，请求驳回上诉，维持原判。
玉茂山中、山西村小组共同述称，玉茂山东村小组提交的文林采字[2016]1021002号《林木采伐许可证》是虚假证件：第一，办理林木采伐许可证必须通过村民委员会审核同意，但该许可证未经该审核程序，也没有林权证作为基础；第二，《林木采伐许可证》载明的四至都是杂灌，杂灌树是原始林木，而原始林木属于保护林木，任何单位与个人不得砍伐；第三，玉茂山东村小组已于2015年6月在争议地采伐了一次桉树与木麻黄树，争议地上根本不存在被许可采伐的林木，也不存在新砍伐的树头；第四，该采伐许可证的编号有涂改痕迹。因此，上述许可证是玉茂山东村小组非法办理的虚假证件，属不诚信诉讼，应追究其责任。综上，请求请求驳回上诉，维持原判。
二审审理过程中，玉茂山东村小组向本院提交《司法鉴定申请书》，请求对两份《林木采伐许可证》所涉林木用地是否在149号土地证范围内进行鉴定。本院认为，玉茂山东村小组在原审期间无正当理由未提出上述鉴定申请，且该证据形成于2016年，不能据此否认该村小组之前签章确认颁证宗地权属界线的事实，故本院对玉茂山东村小组的司法鉴定申请不予准许。
本院经审理查明的基本事实与原审判决认定的事实一致，但原审认定的文昌市政府颁证前就涉案土地权属张贴了征询异议公告的事实错误。经查，文昌市政府提交的《文昌市国土环境资源局土地权属征询异议公告》中的宗地并不包含涉案土地，原审关于该公告的事实认定错误，本院予以纠正。
本院认为，《土地登记规则》第六条规定：”土地登记依照下列程序进行：（一）土地登记申请；（二）地籍调查；（三）权属审核；（四）注册登记；（五）颁发或者更换土地证书。”本案中，在玉茂山中、山西村小组提出土地登记申请后，文昌市政府及其国土部门依法组织用地单位和各相邻单位进行了现场指界，包括玉茂山东村小组在内的各相邻单位均在《土地权属界线核定书》上签章确认了颁证宗地的四至界线。文昌市政府及其国土部门据此向玉茂山中、山西村小组颁发149号土地证，该颁证行为认定事实清楚，亦符合上述法规规定的基本程序。在玉茂山东村小组就149号土地证提起行政复议申请后，省政府作出2号复议决定维持了文昌市政府的颁证行为，该复议结果并无不当。
本案林业局于2016年颁发的两份《林木采伐许可证》和《出售林木协议书》能否证明其对争议地享有权属。本院认为，尽管争议地上的零星树木为玉茂山东村小组所砍伐，但上述证据形成于2016年，而玉茂山东村小组已于2003年10月的土地权属界线核定时签章确认了颁证宗地的界线，即使所涉林木用地在颁证宗地范围内，玉茂山东村小组也不能据此否认其之前对土地界线确认的事实。因此，《林木采伐许可证》《出售林木协议书》不能支持玉茂山东村小组关于其对争议地享有所有权的主张。玉茂山东村小组还对公告的真实性提出异议，并据此主张颁证程序违法。根据本案查明的事实，虽然文昌市政府所提交的证据不能证明其就颁证宗地公告征询异议的事实，但因玉茂山东村小组已在颁证前对土地的界线予以签章确认，该程序瑕疵不能否定颁证结果的正确性，故玉茂山东村民小组的该上诉主张亦不能成立。
综上，文昌市政府颁发149号土地证程序虽有瑕疵，但颁证结果正确。省政府作出2号复议决定予以维持，亦无不当。原审判决认定基本事实清楚，适用法律和案件处理结果正确，应予维持。玉茂山东村小组的上诉请求及理由不能成立，本院不予支持。依照《中华人民共和国行政诉讼法》第八十九条第一款第（一）项之规定，判决如下：
驳回上诉，维持原判。
二审案件受理费50元，由上诉人文昌市翁田镇堆头村民委员会玉茂山东村民小组负担。
本判决为终审判决。
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审判长黄胜敏
审判员吴天月
审判员聂海波
书记员王婉
附：本判决适用的相关法律依据
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