海南省第二中级人民法院
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（2017）琼97民终1414号
海南省第二中级人民法院
民事判决书
（2017）琼97民终1414号
上诉人（原审原告）：陈秀达，男，1948年2月7日出生，汉族，住海南省东方市。
上诉人（原审原告）：卢寒养，男，1951年10月13日出生，汉族，住海南省东方市。
上列上诉人共同委托诉讼代理人：苏汝秀，海南鳞洲律师事务所律师。
被上诉人（原审被告）：卢华昌，男，1972年10月21日出生，汉族，住海南省东方市。
被上诉人（原审被告）：卢永华，男，1972年8月11日出生，汉族，住海南省东方市。
上列被上诉人共同委托诉讼代理人：李跃进，东方市148法律事务所法律工作者。
原审第三人：东方市八所镇罗带村村民委员会，住所地海南省东方市八所镇罗带村。
法定代表人：卢玉斌，该村委会书记、主任。
上诉人陈秀达、卢寒养因与被上诉人卢华昌、卢永华及原审第三人东方市八所镇罗带村村民委员会（以下简称罗带村委会）宅基地使用权纠纷一案，不服海南省东方市人民法院（2017）琼9007民初973号民事判决，向本院提起上诉。本院于2017年11月8日立案后，依法组成合议庭进行了审理。本案现已审理终结。
陈秀达、卢寒养上诉请求：撤销一审判决，改判支持陈秀达、卢寒养的诉讼请求或将本案发回重审。事实和理由：一、一审判决认定事实不清。1.（2014）东民二初重字第2号《民事判决书》，判决罗带村委会与高开香、卢明桃签订的《造林续包合同书》继续履行。该承包地现属于罗带村的新村规划用地，许多村民已在该承包地范围内建房居住，客观上不可能继续履行合同。2.没有经过测绘，一审判决即认定涉案地在高开香、卢明桃的承包地之中，缺乏根据。二、一审判决直接认定陈秀达、卢寒养持有的《宅基地使用证》无效，违反法律规定。《宅基地使用证》是原罗带乡政府发给陈秀达、卢寒养的，具有行政法上的确定性。如果要认定该具体行政行为无效，不应由民事法庭直接认定，应通过行政诉讼解决。三、一审判决将罗带村委会的答辩意见作为定案依据，但罗带村委会的答辩意见未在庭上提交，未经陈秀达、卢寒养辩论，故一审判决程序违法，依法应发回重审。综上，请求二审法院支持陈秀达、卢寒养的上诉请求。
卢华昌、卢永华辩称，一、涉案地为高开香与卢明桃的承包地，有生效的（2014）东民二初重字第2号《民事判决书》确认。二、陈秀达、卢寒养以其持有的《宅基地使用证》主张权利没有事实和法律依据。陈秀达、卢寒养持有的《宅基地使用证》没有经过东方市人民政府的批准，且已被八所镇人民政府作出的《关于卢进强反映村委会将承包地划为宅基地情况的调处意见》予以否定。一审判决认定该《宅基地使用证》至今尚未发生法律效力有事实根据及法律依据。三、卢华昌、卢永华没有侵犯陈秀达、卢寒养的任何权益。涉案地上的坟墓系卢华昌、卢永华家的祖坟，在几十年前就已存在。综上，请求二审法院驳回陈秀达、卢寒养的上诉请求，维持原判。
罗带村委会未到庭应诉亦未书面陈述意见。
陈秀达、卢寒养向一审法院起诉请求：判令卢华昌、卢永华立即停止侵犯陈秀达、卢寒养位于”罗带新住宅家基地规划平面图”上Q行14.15号、R行14.15号、S行14.15号1980平方米及K行15号330平方米的宅基地使用权，并立即恢复土地原状。
一审法院认定事实：1997年10月16日，原东方市罗带乡罗带村委会与高开香、卢明桃签订《造林续包合同书》，由高开香、卢明桃承包位于村委会东南面的沙地坡土地，东至老岁田岸，东北至陈兴荣林地，南至符乃芳坟至老苏田岸，西接卢运宏承包地。西至卢初善家卢开春公墓碑，西南至卢家、陈家坟山，西北至唐尾得家坟山及西侧仙人掌地段，接卢运宏承包地，正北至卢运宏承包地，面积50亩。承包期限30年，从1997年10月16日至2027年10月16日止。2001年5月21日和28日，原东方市罗带乡人民政府给陈秀达、卢寒养颁发了两份《农村宅基地使用证书》，将位于罗带新村Q行14.15号、R行14.15号、S行14.15号1980平方米及K行15号330平方米的土地分给陈秀达作为宅基地。该地块在高开香、卢明桃的承包地之中。原承包人高开香、卢明桃去世后，其继承人因履行合同与罗带村委会发生纠纷，最终，一审法院于2014年11月25日作出（2014）东民二初重字第2号民事判决书，判决确认该《造林续包合同书》继续履行，该判决已生效。如今，陈秀达、卢寒养认为卢华昌、卢永华在其宅基地中堆埋假坟，遂向一审法院提起诉讼。
一审法院认为，该案争议的焦点问题有：一、陈秀达、卢寒养持有的《宅基地使用证》是否有效；二、陈秀达、卢寒养诉请排除妨害是否具有事实根据和法律依据。关于焦点一。一审法院于2014年11月25日作出的（2014）东民二初重字第2号《民事判决书》，判决确认该《造林续包合同书》继续履行，该判决已生效，足以证实该地的合同履行期限尚未终止，任何人不得侵犯他人的土地承包经营权。《中华人民共和国土地管理法》第六十二条第三款规定：”农村村民住宅用地，经乡镇人民政府审核，由县级人民政府批准；其中，涉及占用农用地的，依照本法第四十四条的规定办理审批手续”。该案中，虽然罗带村委会及原罗带乡人民政府已经给陈秀达、卢寒养颁发《宅基地使用证》，但并未征得东方市人民政府的批准，且针对颁证行为，罗带村委会及八所镇人民政府已经先后作出处理意见，原则上收回已经分给陈秀达、卢寒养等人的宅基地，恢复土地承包经营权。罗带村委会及八所镇人民政府的做法系对其错误颁证行为的纠正，并无不妥。故陈秀达、卢寒养持有《宅基地使用证》至今尚未具有合法的效力。关于焦点二。陈秀达、卢寒养认为卢华昌、卢永华在该地中堆埋假坟，只有陈秀达、卢寒养本人的陈述，且卢华昌、卢永华并未认可，只是承认系卢华昌、卢永华家的祖坟，故陈秀达、卢寒养认为卢华昌、卢永华堆埋假坟未能提供充分的证据予以证实。综上所述，陈秀达、卢寒养以持有的《宅基地使用证》诉求卢华昌、卢永华侵权，缺乏事实根据和法律依据，其诉求应予驳回。罗带村委会经合法传唤，无正当理由拒不到庭，依法缺席判决。一审法院依照《中华人民共和国土地管理法》第六十二条第二款、第三款，《最高人民法院关于民事诉讼证据的若干规定》第二条，《中华人民共和国民事诉讼法》第一百四十四条之规定，判决：驳回陈秀达、卢寒养的诉讼请求。案件受理费50元，由陈秀达、卢寒养负担。
本院二审期间，当事人围绕上诉请求依法提交了证据。陈秀达、卢寒养提交：证据1.1997年5月10日罗带村委会与卢志雄签订的《土地复耕承包合同书》复印件一份。拟证明涉案土地不在高开香、卢明桃的承包地范围内。证据2.视频资料一份。拟证明卢华昌、卢永华在涉案地上所堆埋假坟被清除后，又在涉案地上堆埋假坟。证据3.《证明书》一份，拟证明罗带村委会之前所作出的3份材料均违反民主议定程序。经质证，卢华昌、卢永华对该三份证据均不予认可。卢华昌、卢永华提交：东方市城市总体规划图、罗带村建设规划
--村庄综合现状图、罗带村建设规划--
道路交通规划图及罗带新住宅家基规划平面图各一份，拟证明涉案地是政府规划的绿地，也证明罗带村的规划图并没有在承包地中。经质证，陈秀达、卢寒养不予认可。本院认为，针对陈秀达、卢寒养提交的证据1没有原件核对，对该份证据的真实性不予确认。证据2没有涉及卢华昌、卢永华，无法证实陈秀达、卢寒养拟证明的问题。证据3证人没有出庭作证，对该证据的真实性不予确认。对卢华昌、卢永华提供的该组证据，因没有相关部门盖章确认，本院对该组证据的真实性不予确认。
一审查明的事实，本院予以确认。另查明，2010年12月13日东方市八所镇人民政府作出《八所镇人民政府关于卢进强反映村委会将承包地划为宅基地情况的调处意见》，处理意见第一条载明：原则上依法收回规划陈秀达、卢对保、陈成得三人的宅基地，恢复卢进强家的承包地。在该林地所堆放的建筑材料石头砖头等，十五天内自行清理。挖土破坏植被等行为立即停止并恢复原状。”三家人”的宅基地款由村委会退还或补地。卢进强系高开香儿子。
以上事实有《八所镇人民政府关于卢进强反映村委会将承包地划为宅基地情况的调处意见》及当事人的当庭陈述等证据在案证实，足资认定。
本院认为，本案二审的争议焦点为：陈秀达、卢寒养主张卢华昌、卢永华对涉案地停止侵权并恢复土地原状是否有相应的事实根据及法律依据。本案中，陈秀达、卢寒养根据其持有的《宅基地使用证》对涉案地主张权利。根据查明的事实，该《宅基地使用证》虽有罗带村委会及原东方市罗带乡人民政府的盖章，但未征得东方市人民政府的批准，且2010年罗带村委会及八所镇人民政府亦先后作出处理意见，原则上收回规划给陈秀达等人的宅基地，恢复卢进强家的承包地。再者，涉案地在罗带村委会与高开香、卢明桃签订的《造林续包合同书》承包地范围内，生效的（2014）东民二初重字第2号《民事判决书》，判令罗带村委会与高开香、卢明桃签订的《造林续包合同书》继续履行。故一审判决认定陈秀达、卢寒养持有的《宅基地使用证》至今尚未具有合法的效力，有相应的事实根据及法律依据。陈秀达、卢寒养提供的现有证据亦无法证实卢华昌、卢永华在涉案地上有堆埋假坟的行为，应承担举证不能的不利后果。因此，一审判决认定陈秀达、卢寒养以其持有的《宅基地使用证》主张卢华昌、卢永华侵权缺乏事实根据和法律依据正确，判决驳回陈秀达、卢寒养的诉讼请求处理得当，本院予以维持。
综上所述，陈秀达、卢寒养的上诉请求不能成立，应予驳回；一审判决认定事实清楚，适用法律正确，应予维持。依照《中华人民共和国民事诉讼法》第一百七十条第一款第（一）项规定，判决如下：
驳回上诉，维持原判。
二审案件受理费100元，由陈秀达、卢寒养负担。
本判决为终审判决。
审判长张模金
审判员何亮
审判员雷琼艳
二○一七年十二月十一日
书记员胡燕君
附：本案适用的相关法律条文
《中华人民共和国民事诉讼法》
第一百七十条第二审人民法院对上诉案件，经过审理，按照下列情形，分别处理：
（一）原判决、裁定认定事实清楚，适用法律正确的，以判决、裁定方式驳回上诉，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错误的，以判决、裁定方式依法改判、撤销或者变更；
（三）原判决认定基本事实不清的，裁定撤销原判决，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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