海南省海口市中级人民法院
p t ; ” > 行 政 裁 定 书
（2016）琼01行初269号
原告海口市美兰区大致坡镇大东村民委员会西坑村民小组，住所地海口市美兰区大致坡镇大东村民委员会。
负责人陈文，组长。
委托代理人夏余杨，海南瑞来律师事务所律师。
委托代理人董亚竹，海南瑞来律师事务所律师。
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办公区。
法定代表人倪强，市长。
委托代理人王季彪，海口市人民政府法律顾问。
委托代理人张礼，海南唐海律师事务所律师。
第三人海口海牧丰实业有限公司，住所地海口市金镰路1号京江广场A1栋704房。
法定代表人杨武，总经理。
原告海口市美兰区大致坡镇大东村民委员会西坑村民小组（以下简称西坑村民小组）因不服被告海口市人民政府（以下简称市政府）向第三人海口海牧丰实业有限公司（以下简称海牧丰公司）颁发海口市国用（2006）第001599号《国有土地使用证》（以下简称001599号证）的行政行为，向本院提起诉讼。本院登记立案后，依法组成合议庭，公开开庭审理了本案。原告排山村民小组的委托代理人夏余杨、董亚竹，被告市政府的委托代理人王季彪、张礼到庭参加诉讼。第三人海口海牧丰实业有限公司经本院合法传唤，未说明理由未到庭参加诉讼。本案现已审理终结。
被告市政府于2006年向第三人海牧丰公司颁发001599号证，该证记载基本内容如下：”土地使用权人海口海牧丰实业有限公司；座落海口市大致坡镇；图号J3880467；地类（用途)畜禽饲养地;使用权类型出让；终止日期2055年12月14日；使用权面积113439.08平方米。
原告西坑村民小组诉称：原告位于山佳谷村民小组3.743亩集体所有土地，一直由原告经���耕种。2004年12月20日，原告与第三人签订了《土地补偿协议书》，约定将属于原告的土地3.743亩（东至排山坡，西至排山坡，南至西坑坡，北至排山坡）承包给第三人兴建养猪示范基地。近日，村民发现上述土地被用于饲养文昌鸡，通过国土局查询才得知本属于原告的集体所有土地已经非法登记到第三人名下，第三人于2013年12月16日将该土地的使用权转让给海南（谭牛）文昌鸡股份有限公司。第三人明知上述土地属于原告集体所有而隐瞒该事实。海口市土地确权领导小组未经实地调查，也未发布确权异议征询通告，未让邻宗地的村集体组织代表进行指界、确认的请况下，违背上述土地属于原告所有的事实，在2005年4月11日将集体所有土地错误确认为国有未利用地并颁发国有土地使用证给第三人。被告未对土地确权小组提供的土地权属凭调查核实确认，将该地出让给第���人，并于2006年12月15日向第三人颁发001599号证。依据《土地登记规则》第六条的规定：”进行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）颁布或者更换土地证书。”被告及所属的国土部门并没有进行地籍调查、权属审核。《土地登记规则》第十五条规定：”经土地管理部门审核，对认为符合登记要求的宗地予以公告。”被告也没有对登记的涉案地块进行公告。被告在该土地确权、变更登记过程当中严重违反了土地登记的法定程序，将原来属于集体所有土地错误认定为国有未利用地颁布土地证，侵犯了原告的合法权益。本案诉争的土地属于原告集体所有，海口市土地确权登记发证领导小组确权办于2005年4月11日作出《关于海牧丰公司项目用地权属的调���报告》所述的诉争土地”均属国有未利用地”不真实。根据《土地管理法》第四十六条、第四十七条等规定，国家征收土地，应当依法定程序批准并给予土地所有人、使用权人经济补偿。
综上，被告向第三人颁发001599号证严重违反法定程序，侵害了原告合法权益，请求法院撤销被告为第三人颁发的001599号证。主要事实与理由：
原告排山村民小组为证明其提起本案行政诉讼符合法定的起诉条件，向本院提交了《土地补偿协议书》。
被告市政府辩称：一、被告为第三人颁发的001599号证认定事实清楚，证据充分，程序合法，符合法律规定。2004年，第三人进行项目立项备案并提出用地申请，拟兴建3万头商品猪生产基地，选址在海口市××区，项目建设用地需200亩土地。2005年4月，国土部门就该3万头养猪场建设项目用地提出预审意见如下：养猪场用地选址位于××区委会行政范围内，用地规模170.159亩，土地权属为国有，地类基本上为荒草地，有零星林木。养猪场用地属其他农用地中的畜禽饲养地，项目用地位于大致坡土地利用土地总体规划确定大本植物区用地范围内，项目用地基本符合土地利用总体规划。之后，国土部门将美兰区大致坡镇的113439.08平方米国有未利用土地列入2005年度土地出让计划（第五期）。因在规定时间内只有第三人提出用地申请，符合协议出让方式，国土部门于2005年9月向市政府提出将涉案土地协议出让给第三人的方案并得到批准。2006年4月，国土部门作出市土环资用字［2006］418号《关于协议出让国有土地使用权给海口海牧丰实业公司的复函》（以下简称418号《复函》）函复第三人，主要内容如下：同意将位于海口市大致坡镇113439.08平方米的国有未利用地土地使用权以协议方式出让你公司使用，土地用途为畜禽饲养地（农用地），使用年限为50年，土地出让金价格为17.23/平方米，总价为195.4555万元。你公司应按有关规定缴清土地出让金及各项税费后，依法申请办理土地登记手续。随后，第三人按照规定缴清土地出让金及各项税费，并与国土部门签订了《国有土地使用权出让合同》。依据第三人的土地登记申请、海口市土地确权登记发证领导小组《关于海口海牧丰实业有限公司项目用地权属的调查报告》及418号《复函》，国土部门认定第三人使用的土地属国有未利用地，四至清楚，权属来源清楚，经对第三人申请颁证的土地进行地籍调查，组织各方指界，在确认土地来源合法、四至清楚、面积准确的情况下，被告根据《中华人民共和国土地管理法》、《土地登记规则》及其他相关规定，于2006年为第三人颁发了001599号证。据此，被告为第三人颁发的001599号证认定事实清楚，证据充分，程序合法，符合法律规定。
二、原告与涉案土地没有利害关系，不是本案的适格原告，应依法驳回其起诉。根据海口市土地确权登记发证领导小组2005年4月1日《关于海口海牧丰实业有限公司项目用地权属的调查报告》，对涉案土地的基本情况报告如下：1、土地权属情况（经会同美兰区相关部门对该用地进行调查，并查阅我市农村土地确权工作成果档案资料，查明该地并无任何一个单位对其提出权属主张。经认定：在整个项目用地中，均属国有未利用地。）2、地类情况（根据98年出版的1:10000正射影像图判读并经���外核对，认定该项目用地范围内除当地周边村民零星种植一些树木外，基本上均为荒草地）。因此，涉案土地属于国有未利用地。原告主张涉案土地是其集体所有并一直由其经营耕种，但在2003、2004年海口市全面开展的农村土地确权工作期间，其并未就涉案土地提出土地确权申请并取得土地权属证书。而且，就本案而言，原告也没有提供有关涉案土地归其所有的权属证据材料。因此，原告主张涉案土地是其集体所有并一直由其经营耕种的理由是不成立的。据此，涉案土地为国有未利用地，原告与涉案土地没有利害关系，不是本案的适格原告，应依法驳回其起诉。
综上所述，被告为第三人颁发的001599号证认定事实清楚，证据充分，程序合法，符合法律规定；原告与涉案土地没有利害关系，不是本案的适格原告，应依法驳回其起诉。
被告市政府向本院提交了以下证据、依据：1、海口市美兰区大致坡镇国有未利用地勘测定界图；2、关于海口海牧分实业有限公司项目用地权属的调查报告；3、关于要求提供规划意见和规划指标的函；4、海口市规划局关于在美兰区大致坡镇建设养猪场的规划意见；以上几份证据均可以证明涉案的权属状态，证���涉案土地与原告没有任何利害关系。
第三人海牧丰公司未陈述意见，亦未向本院提交证据。
本院认为：当事人提起行政诉讼，应当证明其起诉符合法律规定的起诉条件。原告所提交的《土地补偿协议书》，不能证明其对涉案土地享有所有权或使用权，故原告主张被告向第三人颁发001599号证侵害其合法权益没有事实和法律依据，本院不予支持。综上，原告与被告向第三人颁发001599号证的行政行为没有利害关系，其提起本案行政诉讼，不符合法定的起诉条件，应当裁定驳回起诉。依照《中华人民共和国行政诉讼法》第二十五条第一款、第四十九条第（一）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》第三第一款第（一）项之规定，裁定如下：
驳回原告海口市美兰区大致坡镇大东村民委员会西坑村民小组的起诉。
本案不收取案件受理费。原告海口市美兰区大致坡镇大东村民委员会西坑村民小组已预交的案件受理费予以退还。
如不服本裁定，可在裁定书送达之日起十日内，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。
审判长符汉平
审判员钟山
审判员何芳
二〇一六年十二月三十日
书记员吴虹瑶
附相关的法律、司法解释条文：
《中华人民共和国行政诉讼法》
第二十五条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。
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第四十九条提起诉讼应当符合下列条件：
（一）原告是符合本法第二十五条规定的公民、法人或者其他组织；
（二）有明确的被告；
（三）有具体的诉讼请求和事实根据；
（四）属于人民法院受案范围和受诉人民法院管辖。
《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》
第三条有下列情形之一，已经立案的，应当裁定驳回起诉：
（一）不符合行政诉讼法第四十九条规定的；
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