海南省高级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼行终1181号
海南省高级人民法院
行政判决书
（2017）琼行终1181号
上诉人（原审被告）临高县人民政府，住所地临高县临城镇文明东路县委办公楼。
法定代表人曹文，县长。
委托代理人王超，海南嘉法律师事务所律师。
委托代理人王学畅，临高县国土局工作人员。
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，省长。
委托代理人高冰雁，海南省法制办公室工作人员。
委托代理人王世贤，海南省人民政府法律顾问。
上诉人（原审第三人）王家堂，男，1971年3月24日出生，汉族，住临高县。
委托代理人张卫国，海南大弘律师事务所律师。
被上诉人（原审原告）王世丰，男，1955年7月27日出生，汉族，住临高县。
委托代理人黄燕飞，男，1950年7月7日出生，汉族，住临高县。
原审第三人临高县博厚镇南贤村委会抱生村民小组。
负责人王家乐，组长。
上诉人临高县人民政府（以下简称临高县政府）、海南省人民政府（以下简称海南省政府）、王家堂因与被上诉人王世丰及原审第三人临高县博厚镇南贤村委会抱生村民小组（以下简称抱生村民小组）林业行政登记及行政复议一案，不服海南省第二中级人民法院（2017）琼97行初18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。
临高县政府于2010年6月27日向王家堂颁发临府林证字（2010）第001738号《中华人民共和国林权证》（以下简称1738号林权证），该证项下载明两块土地：林地所有权权利人抱生村民小组；林地使用权权利人王家堂；森林或林木所有权权利人王家堂；森林或林木使用权权利人王家堂；坐落抱生村民小组。该证№1《森林、林木、林地状况登记表》记载一块小地名为文板坡，面积5.94亩。该证№2《森林、林木、林地状况登记表》记载另一块小地名为美南坡，面积6.94亩，东至冼家迫农地（桉树）、南至王家斌林地（香蕉）、西至陈金花桉树林地、北至博厚墟至头国村村路。该证注记：本证随林地承包合同的生效而生效，终止而终止。王世丰于2015年11月得知临高县政府的颁证行为后，向海南省政府提起行政复议，海南省政府于2016年11月18日作出琼府复决字[2016]6号《行政复议决定书》（以下简称6号复议决定），维持了1738号林权证。王世丰不服，诉至法院，请求：一、撤销海南省政府作出的6号复议决定；二、撤销临高县政府向王家堂颁发的1738号林权证中美南坡地中0.75亩林地使用权的登记。
原审查明，本案争议地位于抱生村民小组美南坡，面积0.75亩。2010年1月27日，时任抱生村民小组组长的王家堂与抱生村民小组签订了林地家包字[2010]23号《海南省集体林地家庭承包合同》（以下简称23号林地承包合同），其中记载有小地名美南坡，面积6.94亩，四至界限为东至冼家迫农地（桉树）、南至王家斌林地（香蕉）、西至陈金花桉树林地、北至博厚墟至头国村村路，包含了案涉的0.75亩争议地。该合同落款处有发包方抱生村民小组、临高县博厚镇人民政府、临高县林业局盖章确认。同日，王家堂向临高县林业局提出林权登记申请，进行了宗地（小班）权属勘界并制作了勘界登记表，王家堂向临高县林业局提交了个人身份证明、《林权登记申请表》、23号林地承包合同及《宗地（小班）权属勘界登记表》等材料，申请办理美南坡6.94亩林地、林木的权属登记。2010年5月21日，对包含王家堂在内的52户村民申请办理林权登记进行公示，公示期为2010年5月21日至2010年6月20日。2010年6月26日，临高县林业局经审查确认四至界限和权属清楚，面积准确，公示无异议，同意上报县政府审批颁发林权证。2010年6月27日，临高县政府同意为王家堂颁发1738号林权证。2015年11月，王世丰得知该颁证行为，向海南省政府申请行政复议，海南省政府作出6号复议决定，维持了1738号林权证。
原审另查明，王家堂申请林权登记所提供的23号林地承包合同中发包方法定代表人为王家堂，承包方也为王家堂；其所提交的《宗地（小班）权属勘界登记表》四至相邻人中陈金花的签名并非本人所签，也未提供授权委托手续。
原审还查明，抱生村民小组在本案中确认，本案争议地系村小组1980年发包给王世丰使用的家庭承包地。
原审认为，关于临高县政府向王家堂颁发的1738号林权证，其登记内容关于美南坡地中0.75亩林地使用权的权属来源是否清楚，颁证程序是否合法的问题。《林木和林地权属登记管理办法》第五条规定：”林权权利人应当根据森林法及其实施条例的规定提出登记申请，并提交以下文件：（一）林权登记申请表；（二）个人身份证明、法人或者其他组织的资格证明、法定代表人或者负责人的身份证明、法定代理人或者委托诉讼代理人的身份证明和载明委托事项和委托权限的委托书；（三）申请登记的森林、林木和林地权属证明文件；（四）省、自治区、直辖市人民政府林业主管部门规定要求提交的其他有关文件。”第十一条规定：”对经审查符合下列全部条件的登记申请，登记机关应当自受理申请之日起３个月内予以登记：（一）申请登记的森林、林木和林地位置、四至界限、林种、面积或者株数等数据准确；（二）林权证明材料合法有效；（三）无权属争议；（四）附图中标明的界桩、明显地物标志与实地相符合。”首先，依据以上规定，林权证的颁发应当做到权属清楚，因此，权属调查是保障林权权属清楚并登记发证的关键，权属调查包括核实宗地的权属情况，实地指界，丈量界址边长及相关距离，绘制宗地草图，填写勘界登记表等。本案中，临高县政府在进行勘界过程中，四至相邻人中陈金花的签名并非本人所签，临高县政府在陈金花本人未到现场实地指界、亦未委托他人代为确认指界行为结果的情况下，审查确认争议地权属明确，界址清楚无争议，显然系对争议林地权属来源未调查清楚，颁证证据不足，且违反法定程序。其次，王家堂申请林权登记所依据的23号林地承包合同，其合同发包方及承包方均由其本人签名确认，不符合土地承包的民主议定原则及法定发包程序，且其涉嫌利用职权获取争议林地合法权益，临高县政府在颁证过程中对该承包合同不进行合法有效性审查，显然无法准确查明涉案林地的实际权利归属。第三，根据抱生村民小组在本案中的确认，争议地属于王世丰的承包地，亦进一步印证了临高县政府颁证给王家堂属于认定事实不清，颁证程序违法。综上，临高县政府的颁证行为属于认定事实不清，证据不足，依法应当予以撤销。
关于海南省政府作出6号复议决定的程序是否合法，复议结果是否正确的问题。海南省政府在受理王世丰的复议申请后，依法向王世丰、临高县政府和王家堂、抱生村民小组送达《行政复议受理通知书》《行政复议答复通知书》《参加行政复议通知书》及《行政复议申请书》副本。海南省政府经过书面审查，并组织听证后，作出了6号复议决定，其上述复议程序符合法律规定。但由于临高县政府的颁证行为没有调查清楚涉案土地的权属，颁证的主要证据不足、程序违法，6号复议决定维持临高县政府的颁证行为，亦相应缺乏事实根据，其适用法律法规及复议结果显属错误，应予撤销。
综上，依据《中华人民共和国行政诉讼法》第七十条第（一）、（三）项，《最高人民法院关于适用〈中华人民共和国行政诉讼法〉若干问题的解释》第十条第一款的规定，判决：一、撤销1738号林权证中№2《森林、林木、林地状况登记表》记载的面积6.94亩、小地名为美南坡的有关权利登记内容。二、撤销6号复议决定。
上诉人临高县政府上诉称，原审认定临高县政府颁证时未查清土地权属来源错误。一、王家堂申请颁证时提交的材料齐全，形式合法，记载的林权内容事实清楚，包括王世丰在内的利害关系人在颁证过程中并未提出权属异议，也没有证据证明相邻人陈金花的签名非本人所签。二、临高县政府颁证的基本依据是23号林地承包合同，该合同至今有效，其中约定的王家堂对涉案林地的承包经营权应受法律保护。本案系行政诉讼，原审对该承包合同效力及所涉民事问题作出认定超越法定权限且认定事实错误，原审认定临高县政府未对23号林地承包合同进行合法性审查错误。三、23号林地承包合同由抱生村民小组盖章签名确认生效，该村民小组在诉讼中出具的证明文件与23号林地承包合同不一致，原审据此否定23号林地承包合同的效力没有法律依据。综上，原审撤销1738号林权证中№2《森林、林木、林地状况登记表》记载的面积6.94亩、小地名为美南坡的有关权利登记内容认定事实错误，程序违法，请求撤销原判，驳回王世丰的全部诉请。
上诉人海南省政府上诉称，一、原审认定证据及事实错误。（一）王世丰及抱生村民小组在复议及诉讼过程中均未主张陈金花签名系伪造，也未提交相关证据，原审在未质证、认证的情况下认定陈金花的签名系伪造，认定事实违法。（二）23号林地承包合同依法自成立之日即具有法律效力，当事人对其效力有异议的，可以通过申请仲裁或提起民事诉讼的方式予以确认，临高县政府无权确认合同效力。原审认定临高县政府因在颁证过程中未对23号林地承包合同的效力进行审查致使无法查明涉案土地的实际权利归属，认定事实错误。（三）原审认定被上诉人王世丰提交的证据错误。1.王世丰提交的《关于要求解决我与王家堂土地纠纷的情况反映》，签名村民与王世丰的关系不明确且不能证明所述内容的真实性。抱生村民小组于2014年在该材料上加盖公章确认内容属实，但无其他证据佐证，且与该村小组于2010年颁发1738号林权证时同样加盖公章的材料所认定的事实相互矛盾，依据颁证时村民小组出具的材料认定本案争议土地真正权利人才更客观。2.王世丰提交的《关于南贤村委会王世丰和王家堂的土地纠纷调查笔录》系王世丰的单方陈述，不具有客观性，且无其他证据佐证，只能证明其曾向村集体和国土所反映过相关情况，不能证明争议土地的权属，原审对该证据予以认定错误。3.23号林地承包合同经双方当事人签字盖章，经临高县政府、临高县林业局确认，其证明力远大于上述两份证据，原审仅凭上述两份证据即否定23号林地承包合同的效力错误。综上，王世丰提交的证据不能与其他证据相互印证，也不符合证据的基本形式要件，不具有证明力，不能证明其主张，原审对上述证据予以采信错误。二、原审适用法律错误。（一）原审认定临高县政府在颁证中应对23号林地承包合同进行合法性审查，没有法律依据。1.23号林地承包合同在未被依法确认无效前系合法有效，可以作为涉案林地的权属证明文件。2.临高县政府在颁证时已对王家堂提交的申请材料的真实性、合法性进行了审查，23号林地承包合同经双方签字盖章依法生效，临高县政府已尽到审查义务。（二）原审认定王家堂涉嫌利用职权获取争议林地合法权益，没有事实根据。综上，原审认定证据及事实错误，适用法律错误，请求撤销原判，发回重审或改判驳回王世丰的全部诉请。
上诉人王家堂上诉称，临高县政府的颁证行为认定事实清楚，证据确凿，程序合法，原审撤销1738号林权证中记载的有关权利内容错误。一、陈金花在颁证时已85岁且不会写字，在勘界过程中，经陈金花本人同意，由王世丰的胞弟王世春代签，陈金花对代签、勘界行为并未提出异议，勘界程序合法。原审认定陈金花的签名系伪造、土地权属来源未调查清楚，该认定是错误的。二、王家堂作为时任村民小组长，代表村小组与村民签订林地承包合同系履行法定职责，23号林地承包合同是经过民主议定后按程序签订的，且经过上级有关部门认可及确认，系合法有效的合同，临高县政府依据该合同颁发1738号林权证合法。原审认定23号林地承包合同的发包方与承包方均由王家堂签名确认，不符合土地承包的民主议定原则及法定发包程序，且涉嫌利用职权获取争议林地合法权益，该认定错误。三、王世丰在行政复议及行政诉讼过程中，并未提交任何合法有效的书面证据证明其对本案争议林地享有合法的承包经营权。抱生村民小组现任小组长的证人证言并无其他证据佐证，原审据此认定本案争议土地的承包经营权应归王世丰所有，没有事实根据和法律依据。退一步讲，即使王世丰曾在1980年拥有本案争议土地的承包经营权，但历经30年，在该林地无人耕种面临荒废或承包到期的情况下，经法定程序调整给他人承包也无可非议。王世丰在时隔多年后无理缠讼，其申请行政复议及提起行政诉讼超过诉讼时效，原判支持其诉请严重损害了王家堂的合法权益。综上，请求撤销原判，驳回王世丰的诉讼请求，维持6号复议决定和1738号林权证的登记内容。
被上诉人王世丰答辩称，原审认定事实清楚，适用法律正确。一、临高县政府颁发1738号林权证的行为未调查清楚争议林地权属来源，颁证依据的证据不足，违反法定程序，错将抱生村民小组分配给王世丰的0.75亩”美南坡”林地颁证给王家堂，侵犯了王世丰的合法权益。原审撤销1738号林权证正确。二、原审认定相邻人陈金花的签名并非本人所签、不具有法律效力，认定事实正确。三、王家堂上诉称原审依据抱生村民小组在诉讼过程中出具的证明否定抱生村民小组之前盖章签名确认的23号林地承包合同的效力没有法律依据，其该项主张系对法律的曲解。王世丰提交的证据合法，足以证明其对本案争议的0.75亩土地享有使用权。综上，原审判决结果正确，请求驳回上诉，维持原判。
原审第三人抱生村民小组述称，一、1738号林权证包含了王世丰承包的”美南坡”0.75亩土地，侵犯了王世丰的合法权益。二、临高县政府颁发1738号林权证的行为程序违法。王家堂在其任职抱生村民小组组长期间，利用职权便利，提供虚假申报材料申请颁发林权证，临高县政府未对其材料认真审核，也没有召集王世丰和相关各方到场勘查指界确认，也未张榜公告土地承包方案，临高县政府在存在上述程序违法的情况下颁发1738号林权证，应予撤销。三、王世丰自1980年起即承包本案争议土地并连续耕作至1994年，后因经济困难外出务工，自1994年起未再耕种本案争议土地，只留零星树木。2008年，王世丰返乡务农，准备耕作时才知晓王家堂已在本案争议土地上种植橡胶。王世丰此后多次要求王家堂归还本案争议土地未果，遂于2014年向博厚镇政府申请确权，镇政府国土所已进行调查但尚未结案，王家堂却已利用职务便利将本案争议土地申请颁证到自己名下。临高县政府及林业管理部门在颁证过程中程序违法，登记内容严重失实。四、海南省政府作出的6号复议决定维持了1738号林权证，没有事实根据和证据支持，依法应予撤销。
二审经审理查明，王家堂自述陈金花的签名系王世丰的胞弟王世春代签，但其称经过陈金花本人同意，未能提供证据证明。
二审查明的事实与原审判决查明的事实一致。
本院认为，根据《林木和林地权属登记管理办法》第十一条的规定，登记机关应对林权权利人提交的林权证明材料是否合法有效、林地权属是否有争议进行审查，对不符合条件的登记申请应不予登记。根据本案查明的事实，本案所涉争议地为抱生村民小组集体所有土地，王家堂申请林权登记时虽提供了其与抱生村民小组签订的23号林地承包合同，但该合同系由王家堂作为抱生村民小组负责人与其本人签订，该合同落款处虽有发包方抱生村民小组、临高县博厚镇人民政府、临高县林业局盖章确认，但本案并无证据证明系抱生村民小组根据《中华人民共和国农村土地承包法》第十八条、第十九条规定的承包原则和程序将争议地发包给王家堂，且抱生村民小组在本案中亦确认争议地系村小组1980年发包给王世丰使用的家庭承包地。因此，王家堂申请林权登记的美南坡6.94亩林地使用权权属不清，临高县政府予以颁证证据不足。原审撤销临高县政府颁发的1738号林权证中№2《森林、林木、林地状况登记表》记载的面积6.94亩、小地名为美南坡的有关权利登记内容，并无不当。海南省政府作出的6号复议决定维持临高县政府的颁证行为不当，原审予以撤销，亦无不当。综上，原审判决认定事实清楚，判决结果并无不当，应予维持。临高县政府、海南省政府、王家堂的上诉请求不成立，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。
二审案件受理费各50元，由上诉人临高县人民政府、上诉人海南省人民政府、上诉人王家堂各自负担。
本判决为终审判决。
审判长王华
审判员聂海波
审判员刘利红
[盖章位置]
法官助理周磊
书记员黄蜀
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