海南省海口市中级人民法院
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（2017）琼01行终214号
上诉人（原审原告）海口市美兰区新埠街道土尾社区居委会土尾居民小组，住所地海口市美兰区新埠街道土尾村。
法定代表人谢佩南，组长。
委托代理人王伟，海南富岛律师事务所律师。
被上诉人（原审被告）海口市国土资源局，住所地海口市长滨路市政府第二行政办公区15栋北楼。
法定代表人韩艺师，局长。
委托代理人吴孔军，海南瑞来律师事务所律师。
原审第三人海口市美兰区新埠街道土亮脚经济社，住所地海口市美兰区新埠街道亮脚村。
法定代表人吴多海，组长。
原审第三人海口市美兰区新埠街道土亮肚经济社，住所地海口市美兰区新埠街道亮肚村。
法定代表人吴兴生，组长。
原审第三人海口市美兰区新埠街道外坪经济社，住所地海口市美兰区新埠街道外坪村。
法定代表人周生庆，组长。
以上三位原审第三人的共同委托代理人林天能，海南维特律师事务所律师。
上诉人海口市美兰区新埠街道土尾社区居委会土尾居民小组（以下简称土尾居民小组）因其诉被上诉人海口市国土资源局（原海口市国土海洋资源局，以下简称市国土局）、原审第三人海口市美兰区新埠街道土亮脚经济社（以下简称土亮脚经济社）、海口市美兰区新埠街道土亮肚经济社（以下简称土亮肚经济社）、海口市美兰区新埠街道外坪经济社（以下简称外坪经济社）土地行政管理一案，不服海口市美兰区人民法院（2017）琼0108行初2号行政裁定，向本院提起上诉。本院受理后，依法组成合议庭审理了本案。
本案被诉行政行为：2000年，市国土局以原海口市新埠镇土尾村民委员会和原海口市新埠镇三联村民委员会为行文对象，作出市土海籍字[2000]026号《海口市国土海洋资源局关于认定新埠镇土尾村民委员会与三联村民委员会土地权属界线核定书无效的通知》（以下简称026号通知）。该通知的主要内容为，”经原海口市国土规划管理局核定的你俩村之间权属界线的核定书上的签章一方为三联村民委员会，根据1987年1月1日起施行的《中华人民共和国土地管理法》第二章第八条之规定，三联村与土尾村之间的权属界线核定书应由三联村的三个经济社共同签章方有效。因此认定该核定书无效。特此通知”。
2016年7月26日，土尾居民小组因征地问题到国土部门查询时，发现了026号通知，遂于2017年1月4日向海口市美兰区人民法院提起行政诉讼，请求撤销026号通知。
原审裁定认为：市国土局作出的《土地权属界线核定书》，是行政机关组织各方形成的土地确权证据材料，不是生效的行政决定。此后市国土局作出的026号通知，是行政机关在作出行政行为过程中的证据采信行为，对当事人的权利义务不产生实际影响。土尾居民小组据此提起行政诉讼，应予驳回。依照《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》第三条第一款第（八）项规定，裁定驳回土尾居民小组的起诉。本案不收取案件受理费，已收取土尾居民小组的案件受理费50元予以退还。
上诉人土尾居民小组上诉称：1987年，国土部门经过开展大量调查取证及协调工作，才制作了涉案《土地权属界线核定书》，土尾居民小组和原审第三人的前身三联村委会都在该核定书上签章予以确认。该核定书对双方当事人具有约束力，为维护双方的和谐稳定起到了关键作用。近期，政府征地修路。根据前述界线核定书，所征土地均在土尾居民小组土地范围内，却因026号通知而未能取得征地补偿。土尾居民小组认为，涉案《土地权属界线核定书》是由行政机关制作并颁发给土地权利人的土地权属凭证，具有行政行为的属性。026号通知的实质内容，是认定涉案《土地权属界线核定书》无效，属于典型的行政行为，并对当事人的权利义务产生重大影响。而且，市国土局在2000年暗自作出026号通知，也明显违法。据此，请求二审法院：1、撤销海口市美兰区人民法院（2017）琼0108行初2号行政裁定书；2、撤销026号通知。
经审理查明：1987年7月18日，原海口市国土规划管理局组织原海口市新埠镇土尾村民委员会与原海口市新埠镇三联村民委员会指界后，制作了确定双方土地界线的《土地权属界线核定书》。1987年7月21日，原海口市新埠镇土尾村民委员会与原海口市新埠镇三联村民委员会在该核定书上签章予以确认。1987年7月25日，原海口市国土规划管理局在该核定书上盖章予以确认。但是，涉案土地至今尚未颁发土地权属证书。2000年，市国土局以原海口市新埠镇土尾村民委员会和原海口市新埠镇三联村民委员会为行文对象，作出026号通知，主要内容为”经原海口市国土规划管理局核定的你俩村之间权属界线的核定书上的签章一方为三联村民委员会，根据1987年1月1日起施行的《中华人民共和国土地管理法》第二章第八条之规定，三联村与土尾村之间的权属界线核定书应由三联村的三个经济社共同签章方有效。因此认定该核定书无效。特此通知”。但是，市国土局至今未将026号通知送达给土尾居民小组。2016年7月26日，土尾居民小组因征地问题到国土部门查询时，发现了026号通知，遂于2017年1月4日向海口市美兰区人民法院提起行政诉讼，请求撤销026号通知。
以上事实，有当事人提交的《行政诉状》、《土地权属界线核定书》、026号通知和本院对各方当事人的《询问笔录》在案佐证。
本院认为：本案的争议焦点系上诉人土尾居民小组提起本案诉讼是否符合法定条件，其关键在于本案被诉的026号通知对土尾居民小组的合法权益是否产生实际影响。根据026号通知认定涉案《土地权属界线核定书》无效的内容，该通知将会引发重新对涉案土地进行权属界线核定的法律后果，并必然导致依据该《土地权属界线核定书》所做的行为被撤销或者认定无效。而且，026号通知已经实际阻却土尾居民小组获得相应的征地补偿。因此，026号通知对土尾居民小组的合法权益已经产生实际影响，理当属于行政诉讼受案范围。另外，行政机关制作土地权属界线核定书的行政行为，以当事人的指界结果作为事实根据，属于土地确权颁证的阶段性行为，对当事人具有相应的拘束力。这种阶段性行为原则上不可诉，但如该阶段性行为直接对外发生法律效力，并对当事人权利义务产生实际影响时，则可诉。但是，无论该阶段性行为是否可诉，否定该行为效力的行政行为，均属于可诉范围。而且，证据与行为是两个不同的概念。《土地权属界线核定书》是证据，土地证也是证据，否定这些证据的效力，实质就是否定相应行政行为的效力，依法应当属于行政诉讼受案范围。因此，原审裁定认为026号通知是证据采信行为，对当事人的权利义务不产生实际影响的论述，于法无据，应予纠正。
综上所述，原审裁定适用法律错误，应予撤销，并指令原审法院继续审理本案。依照《中华人民共和国行政诉讼法》第八十九条第一款第（二）项和《最高人民法院关于执行〈中华人民共和国行政诉讼法〉若干问题的解释》第六十八条的规定，裁定如下：
一、撤销海口市美兰区人民法院（2017）琼0108行初2号行政裁定；
二、本案指令海口市美兰区人民法院继续审理。
本裁定为终审裁定。
审判长钟山
审判员潘娜
审判员吴茜
二〇一七年十二月二十一日
法官助理ＸＸ
书记员江楠
附相关法律法规条文：
最高人民法院
关于执行《中华人民共和国行政诉讼法》若干问题的解释
第六十八条第二审人民法院经审理认为原审人民法院不予受理或者驳回起诉的裁定确有错误，且起诉符合法定条件的，应当裁定撤销原审人民法院的裁定，指令原审人民法院依法立案受理或者继续审理。
中华人民共和国行政诉讼法
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。
人民法院审理上诉案件，需要改变原审判决的，应当同时对被诉行政行为作出判决。
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