海南省第一中级人民法院
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（2017）琼96行初82号
海南省第一中级人民法院
行政判决书
（2017）琼96行初82号
原告张昌进，男，1939年12月5日出生，汉族，住万宁市。
委托代理人张运民，海南信容慈律师事务所律师。
被告万宁市人民政府。住所地：万宁市红专中街。
法定代表人周高明，市长。
委托代理人杨哲，万宁市人民政府法制办干部。
委托代理人李志刚，万宁市国土资源局干部。
第三人许声富，男，1934年10月21日出生，汉族，住万宁市。
原告张昌进诉被告万宁市人民政府（以下简称万宁市政府）给第三人许声富颁发万国用（2000）字第2000013022号《国有土地使用证》（以下简称第2000013022《国土证》）一案，于2016年11月2日向本院提起行政诉讼。本院经审理作出（2016）琼96行初221号行政裁定，以原告起诉超过起诉期限为由，裁定驳回其起诉。原告不服，向海南省高级人民法院上诉。2017年3月24日，海南省高级人民法院作出（2017）琼行终163号行政裁定，撤销（2016）琼96行初221号行政裁定，本案由本院继续审理。本院于2017年5月25日受理后，依法组成合议庭，于2017年6月30日在本院公开开庭审理了本案。原告张昌进及其委托代理人张运民，被告万宁市政府的委托代理人杨哲、王志刚到庭参加诉讼。第三人许声富经依法传唤未到庭参加诉讼。本案现已审理终结。
2000年11月，被告给第三人颁发第2000013022《国土证》，该证登记四至为：东至黄国庆大门、西至万礼街、南至礼纪农技站隔墙、北至张昌进宅隔墙，面积为１３３.1平方米。
原告诉称，原告早在1986年就建造瓦房居住使用至今。2000年10月4日，原告与第三人长子许亚平签订协议明确约定，许亚平用地长度与农机站用地长度一致（长约17米），双方应共同遵守执行。而第三人持有的第2000013022《国土证》登记的土地长度为29.5米，将原告瓦房西南墙体用地登记在该证项下，明显与事实不符，已经侵犯原告的合法权益。请求法院判令撤销第2000013022《国土证》。
原告提供证据如下：1-2.《申请书》，证明原告经过相关部门批准依法在涉案土地上建房。3.《协议书》，证明原告与第三人明确约定双方土地的交界点为与镇农机站北前墙平行。4.第2000013022《国土证》，证明被告将原告居住的瓦房西南墙体的土地登记在第三人名下错误。5.《查档审批表》，证明被告颁证没有土地登记档案及登记信息存档，其颁证行为违法。6.《情况反映》，证明原告对被告违规颁证向省委巡视组反映请求处理的事实。7.《答复意见》，证明省委巡视组根据原告的反映，深入调查核实，并建议被告对涉案国土证重新审查。8.常住人口信息，证明第三人的身份。
被告辩称，涉案国土证没有登记信息和土地档案。2012年，第三人持涉案国土证主张原告1986年所建房屋西南处侵占其国土证用地范围为由要强行拆除，引起纠纷。经市国土部门和镇政府多次协调，原告和第三人未能达成一致意见。鉴于涉案土地多次发生纠纷，双方各执一词，目前被告相关部门正在收集相关证据材料，以便更好的解决双方矛盾，同时被告所属国土部门对涉案国土证进行重新审查，及时与镇政府沟通后再次组织双方协调处理。
被告向本院提交作出行政行为的证据:１.情况报告、答复意见、督办事项反馈单、呈批表，证明被告所属国土部门向被告反映办理涉案国土证的相关情况。２.审批表，证明涉案国土证没有登记信息和存档材料。
诉讼中，经本院要求，被告所属国土部门对涉案土地进行勘测。经测量，原告于1986年所建瓦房的西南墙体在涉案土地范围内。
经庭审质证，本院对上述证据作如下确认：一、对被告提供的证据的确认意见。被告提供的证据真实且与本案有关联，可以作为认定本案事实的根据。二、对原告提供的证据的确认意见。证据1-2、证据6-8真实且与本案有关联；证据5证明被告颁证行为没有登记信息和存档材料。因此，上述证据可以作为认定本案事实的根据。证据3不能作为享有土地使用权的证据。证据4证明原告所建瓦房的西南墙体登记在第2000013022《国土证》项下，可以作为认定本案事实的根据。三、对勘测图的确认意见。原告和被告无异议，可以作为认定本案事实的根据。
经审理查明，涉案土地位于万宁市××镇东侧，面积为133.1平方米。上个世纪八十年代，原告家经当时所在生产队、大队、公社同意，在经批准的土地上建起瓦房。2012年，第三人持第2000013022《国土证》主张原告所建瓦房的西南墙体在其国土证范围内，要求原告拆除，双方据此发生纠纷。经双方所在镇政府协调未果，期间，该镇政府将第2000013022《国土证》复印给原告。2014年，原告向海南省委第二巡视组反映被告所属国土部门违法颁证的情况，该巡视组要求政府审查并进行处理。庭审中，被告称不知道是否已经给第三人颁发第2000013022《国土证》。
另查明，关于第2000013022《国土证》的登记信息和土地登记材料，被告没有档案。
还查明，原告于1986年所建瓦房的西南墙体在第2000013022《国土证》范围内。
本院认为，本案争议的焦点是：１.被诉行政行为是否存在即被告是否给第三人颁发第2000013022《国土证》。２.被告颁证行为是否合法。
关于被诉行政行为是否存在的问题。根据本案查明的事实，第三人曾持第2000013022《国土证》向原告主张涉案土地的权属，原告和第三人所在镇政府亦召集双方进行协调。且有关部门也要求被告对第2000013022《国土证》进行核查。虽然第三人未依法出庭应诉，本院无法核对第2000013022《国土证》的原件，但从本案目前诉讼证据审查，被告没有充分确凿的证据证明被诉行政行为不存在。因此,关于本案被诉行政行为，原告已经初步完成举证责任，证明被诉行政行为的存在。原告可以就被诉行政行为提起行政诉讼。
关于被诉行政行为是否合法的问题。首先，被告颁证行为认定事实不清，主要证据不足。被告颁证前，原告已建好瓦房，该瓦房的墙体在涉案土地范围内，被告没有调查清楚，显然认定事实不清，证据不足。其次，被告颁证行为违反法定程序。根据国家土地管理局1993年6月22日颁布实施的《城镇地籍调查规程》3.2.6.1关于”界址的认定必须由本宗地及相邻宗地使用者亲自到现场共同指界”的规定，原告作为涉案土地的使用者，被告没有通知原告到场指界，违反法定程序。
综上，本案被诉行政行为存在，原告可以就被诉行政行为提起行政诉讼。被告给第三人颁发的第2000013022《国土证》，认定事实不清，主要证据不足，程序违法，应予撤销。根据《中华人民共和国行政诉讼法》第七十条第（一）、（三）项之规定，判决如下：
撤销被告万宁市人民政府于2000年11月给第三人许声富颁发的万国用（2000）字第2000013022号《国有土地使用证》。
案件受理费50元，由被告万宁市人民政府负担。
如不服本判决，可在判决书送达之日起十五日内向本院提交上诉状，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。
审判长吕丽霞
审判员姜国强
审判员冯花
二〇一七年七月二十七日
法官助理符月玲
书记员詹文莉
书记员詹文莉
附：本案适用的法律法规
《中华人民共和国行政诉讼法》
第七十条行政行为有下列情形之一的，人民法院判决撤销或者部分撤销，并可以判决被告重新作出行政行为：
（一）主要证据不足的；
（二）适用法律、法规错误的；
（三）违反法定程序的；
......
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