海南省海口市中级人民法院
p t ; ” > 行 政 判 决 书
（2016）琼01行初357号
原告符仁泓，曾用名管海涛，男，1988年3月11日出生，汉族，住海口市美兰区龙舌坡418号省。
委托代理人许文刚，海南法立信律师事务所律师。
委托代理人龚春枝，海南法立信（琼海）律师事务所律师。
被告海口市人民政府，住所地海口市秀英区长滨路市政府第二行政办公区。
法定代表人倪强，该市市长。
委托代理人王季彪，该市政府法律顾问室法律顾问。
委托代理人张礼，海南唐海律师事务所律师。
原告符仁泓诉被告海口市人民政府（以下简称市政府）不履行土地登记法定职责一案，本院立案后，依法组成合议庭，公开开庭审理了本案。原告符仁泓的委托代理人许文刚、龚春枝和被告市政府的委托代理人王季彪、张礼到庭参加诉讼。本案现已审理终结。
2012年9月11日，原告就其持有的《琼山县非农业建设用地核发证书登记表》和NO.0006743《宅基地使用权审核证》，向被告申请换发国有土地使用证。被告在本案起诉前，仍未给原告颁发《国有土地使用证》。被告于2016年11月9日收到本院邮寄送达的起诉状副本后，于2016年11月24日向本院提供了以下证据：1、《琼山县非农业建设用地核发证书登记表》、《宅基地使用权审核证》、《非农业用地登记表》、市土资琼山字[2012]54号《关于符玉叶、管海涛等人申请换发国有土地证的复函》；2、《关于撤销吴某1、吴某2土地登记的申请》、海土资琼山字[2015]731号《海口市国土资源局关于申请撤销吴某1、吴某2土地登记的函》；3、《海口市国土资源局琼山分局公文处理卡》、《异议书》、《情况说明》、《协议书》、《证明书》、《宗地图》、《收据》、《收条》；4、琼山土资字[2016]222号《海口市国土资源局琼山分局关于协助调查核实并出具符玉叶等四人土地权属来源证明的函》。
原告符仁泓诉称：1986年8月，原告通过有偿受让方式取得位于海口市××区电台荒坡地），并获得原琼山县铁桥区公所、原琼山县国土局的审核，以及原琼山县人民政府的审批。1987年8月17日，原琼山县国土局向原告出具了《琼山县非农业建设用地核发证书登记表》，并颁发No.0006743《宅基地使用权审核证》。2000年12月5日，原琼山市规划土地管理局为给原告办理新证，向原告收回前述《琼山县非农业建设用地核发证书登记表》与《宅基地使用权审核证》原件。2003年，琼山市并入海口市，其国土局也并入海口市国土资源局。2012年9月，原告向海口市国土资源局要求换发国有土地使用证。2012年9月24日，海口市国土资源局向原告复函，称因暂停个人旧城区宅基地的初始登记业务，待恢复旧城区宅基地初始登记业务后，将依法按土地登记给予完善发证手续。今年，国土部门重新启动宅基地发证工作，原告持相关证件向海口市国土资源局要求办理土地确权发证手续。海口市国土资源局指定海口市国土资源局琼山分局办理。2016年7月14日，该分局经过审核，向石塔村委会发函，以《琼山县非农业建设用地核发证书登记表》及《宅基地使用权审核证》原件丢失，需核实土地权属来源证明为由，要求石塔村委会协助调查，但至今未能为原告完成调查手续。海口市国土资源局也没有为原告办理土地确权手续，导致被告至今未能为原告颁发土地权属证书。综上，被告未依法履行颁证职责，原告特请求人民法院：1、判决被告依法履行法定职责，为原告办理位于海口市××区电台荒坡地，现属海口市府城镇铁桥管区，审核证为0006743号），面积为216平方米之土地使用权登记，并为原告颁发国有土地使用权证书；2、本案诉讼费由被告承担。
原告符仁泓在开庭审理前，向本院提供了以下证据：1、《宅基地使用权审核证》；2、《琼山县非农业建设用地核发证书登记表》；3、《非农业用地登记表》；4、《管海涛用地坐标图》、《土地使用权座落及现状》；5、《关于换发国有土地使用证的请求》；6、市土资琼山字[2012]54号《关于符玉叶、管海涛等人申请换发国有土地证的复函》；7、琼山土资字[2016]222号《海口市国土资源局琼山分局关于协助调查核实并出具符玉叶等四人土地权属来源证明的函》；8、《琼山市1986年至1987年非农业用地登记收件单》。
被告市政府辩称：根据《中华人民共和国土地管理法》第十一条的规定，土地使用权须由县级以上人民政府登记造册，核发证书后才能确认使用权。因此，原告持有的《琼山县非农业建设用地核发证书登记表》和《宅基地使用权审核证》，只作为确定土地使用权的权属证明材料，不是合法的土地使用权证，原告尚未取得涉案土地的使用权，涉案土地尚需被告登记确权。另外，2012年，原告持《琼山县非农业建设用地核发证书登记表》和《宅基地使用权审核证》，向被告下属国土部门申请换发国有土地使用证。经审查，被告下属国土部门依法回函，告知原告持有的材料属于权属证明材料，涉案土地尚未完成土地权属登记，所申请的事项属于个人土地使用权初始登记业务，但由于全市拆除违法建筑工作需要，暂停涉案业务的办理，待恢复后再行办理。之后，被告发现涉案土地使用权在2009年土地第二次调查登记时，土地使用主体登记为吴某1、吴后莊、吴某2等人。2015年，原告向被告下属国土部门申请依法撤销吴某1等人的土地登记。经审查，被告下属国土部门依法作出回函，告知原告上述调查登记只是土地调查成果资料，调查成果尚未依法批准进行土地登记，不具有确定土地使用权的法律效力。2015年3月13日，吴某1等人向被告下属国土部门送达《异议书》及证据材料，主张涉案土地早在1987年9月15日已经转让给琼山县龙桥镇泸华工艺厂，该厂解散后，依法登记在异议人名下，并要求国土部门调查清楚。因此，涉案土地存在产权纠纷，被告无法直接为原告颁发涉案宗地的国有土地使用权证。而且，根据《中华人民共和国土地管理法》第十六条的规定，因涉案土地权属存在争议，需双方协商一致或者政府处理后，才能依法办理土地登记。综上，因涉案土地存在权属争议，在争议未处理完毕的情形下，被告依法不能履行法定职责为原告办理涉案土地登记，恳请法院依法驳回原告的诉讼请求。
本案各方当事人提交的前述证据材料和诉、辩、陈述意见，业经庭审质证和核实，记录在案，可以作为认定本案事实的证据和依据。
经审理查明：1986年9月4日，管伟平（已死亡）、管海涛（即原告符仁泓）就原琼山县（现已并入海口市）城南乡石塔村电台荒坡地216平方米用地，共同申请非农业用地登记。1987年8月17日，原琼山县国土局就前述申请，填写了《琼山县非农业建设用地核发证书登记表》，并给管伟平、管海涛核发了NO.0006743《宅基地使用权审核证》。之后，管伟平、管海涛一直未使用该宅基地，也未取得人民政府颁发的土地权利证书。2012年9月11日，原告与他人一起，就各自所持不同地块的材料，共同向海口市国土资源局（以下简称市国土局）作出《关于换发国有土地使用证的请求》，申请换发国有土地使用证。2012年9月24日，市国土局作出市土资琼山字[2012]54号《关于符玉叶、管海涛等人申请换发国有土地证的复函》，向原告等人进行答复，主要内容是”经调查，你们申请办理换发新证的土地位于海口市××区。原琼山县国土局给予你们核发的《琼山县非农业建设用地核发证书登记表》和《宅基地使用权审核证》只是作为确定土地使用权的权属证明材料，但尚未完善土地登记发证手续。现你们持上述材料向我局申请办理的用地手续属个人土地使用权初始登记业务。自2010年下半年起，为配合全市性打击违章建筑的工作，我局已全面暂停个人旧城区宅基地的初始登记业务，待该项业务恢复办理后，我局将依法按土地登记程序给予完善发证手续。”2015年，原告和另一宗地申请人符玉叶拟在石塔村宅基地上修建围墙时，案外人吴某1、吴某2等人以土地使用权归其所有为由进行阻拦。2015年3月13日和2015年3月16日，吴某1、吴某2等人先后向海口市国土资源局琼山分局（以下简称琼山国土分局）作出《异议书》和《情况说明》，递交了《协议书》、《证明书》、收条、收据、1996年《宗地图》等材料，主张涉案土地使用权归其所有，并就原告涉案土地登记申请提出异议。之后，符玉叶、管海涛到市国土局进行查询，发现该地在2009年第二次土地调查时，记录土地使用权人为吴某1、吴某2。2015年4月26日，符玉叶、管海涛向市国土局作出《关于撤销吴某1、吴某2土地登记的申请》，共同请求撤销吴某1、吴某2的土地权属登记，并将该地恢复登记到其名下。2015年7月23日，市国土局就前述申请，作出海土资琼山字[2015]731号《海口市国土资源局关于申请撤销吴某1、吴某2土地登记的函》，向符玉叶、管海涛进行答复，以”吴某1、吴某2的土地调查成果未经依法批准进行土地登记，不得作为该两宗土地的权利人凭证，不具备法律效力”为由，对符玉叶、管海涛的前述申请不予受理。2016年7月14日，琼山国土分局以石塔村委会为行文对象，作出琼山土资字[2016]222号《海口市国土资源局琼山分局关于协助调查核实并出具符玉叶等四人土地权属来源证明的函》，请求该村委会及宗地所属村民小组协助调查核实并出具涉案土地权属来源证明，但至今未见回复。2016年11月7日，原告向本院提起本案诉讼。
本院认为：根据《土地登记办法》第十八条第一款第（一）项的规定，对于土地权属存在争议的情形，应当不予登记。本案中，案外人吴某1、吴某2在涉案宗地登记过程中，已经提出异议。这从原告向市国土局递交的《关于撤销吴某1、吴某2土地登记的申请》，也说明原告知道涉案宗地权属存在争议。在该情形尚未消除的情况下，涉案宗地尚不具备登记、颁证的法定条件。因此，原告现诉请被告就涉案宗地办理登记和颁证，违反前述法条的规定，依法应予驳回。另外，被告在涉案宗地登记中，一直积极地为原告调查核实涉案宗地权属，以期解决涉案宗地权属争议，也不构成不履行法定职责的行政不作为。综上所述，原告的诉讼请求，于法无据，依法应予驳回。依照《中华人民共和国行政诉讼法》第六十九条的规定，判决如下：
驳回原告符仁泓的诉讼请求。
一审案件受理费50元，由原告符仁泓负担。
如不服本判决，可在判决书送达之日起十五日内，向本院递交上诉状，并按对方当事人的人数提出副本，上诉于海南省高级人民法院。
审判长钟山
审判员符汉平
审判员潘娜
书记员麦海燕
附相关法律法规条文：
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有权提起诉讼的公民死亡，其近亲属可以提起诉讼。 有权提起诉讼的法人或者其他组织终止，承受其权利的法人或者其他组织可以提起诉讼。
第八十九条人民法院审理上诉案件，按照下列情形，分别处理： （一）原判决、裁定认定事实清楚，适用法律、法规正确的，判决或者裁定驳回上诉，维持原判决、裁定；
（二）原判决、裁定认定事实错误或者适用法律、法规错误的，依法改判、撤销或者变更；
（三）原判决认定基本事实不清、证据不足的，发回原审人民法院重审，或者查清事实后改判；
（四）原判决遗漏当事人或者违法缺席判决等严重违反法定程序的，裁定撤销原判决，发回原审人民法院重审。
原审人民法院对发回重审的案件作出判决后，当事人提起上诉的，第二审人民法院不得再次发回重审。
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