海南省海口市中级人民法院
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（2017）琼01行终158号
上诉人（原审原告）：王基成，男，1949年12月1日出生，汉族，住海口市。
被上诉人（原审被告）：海口市秀英区农林局，住所地：海口市秀英区秀华路2号秀英区政府办公楼2楼。
法定代表人：余贤兴，局长。
委托代理人：李秀峰，该局工作人员。
原审第三人：海口市秀英区石山镇和平村民委员会文风村民小组。
负责人：王关伟。
原审第三人：钟真文，男，1968年11月28日出生，汉族，住海口市。
上诉人王基成因与被上诉人海口市秀英区农林局（以下简称秀英区农林局）、原审第三人海口市秀英区石山镇和平村民委员会文风村民小组、钟真文撤销承包经营权证一案，不服海口市秀英区人民法院（2017）琼0105行初63号行政判决，向本院提出上诉。本院于2017年8月16日立案后，依法组成合议庭进行审理。本案现已审理终结。
被上诉人秀英区农林局于2005年9月1日向原审第三人钟真文颁发海口市（县）农地承包权（石山）第0710312号农村土地承包经营权证（以下简称0710312号承包证），同意将位于海口市秀英区石山镇和平村民委员会文风村民小组地块名称为”美忙”，面积为0.84亩，四至范围为东至振长，南至基建，西至振吉，北至传典的土地交由钟真文承包经营。
上诉人于2017年5月25日向原审法院提起本案诉讼，诉讼请求：确认秀英区农林局给钟真文颁发0710312号承包证的行为违法，并撤销该行为。
原审法院查明：本案涉案土地位于海口市秀英区石山镇和平村民委员会文风村民小组，地块名称为”美忙”，面积为0.84亩，四至范围为东至振长，南至基建，西至振吉，北至传典。1953年，原琼山县人民政府向钟真文的家人颁发《土地房屋所有证》，其中就有名称为”美忙”的土地。1997年10月1日，原琼山县石山镇和平村委会文风经济合作社与钟真文签订《农业承包合同书》和《海南省家庭承包耕地合同书》，将涉案土地交由钟真文承包经营管理，同时明确承包经营期限及钟真文按时上缴粮食和承包金的数额。2005年9月1日，秀英区农林局根据钟真文的申请及村、镇上报的材料，经审核后将钟真文的承包土地信息录入农村土地经营权证管理系统，并向钟真文重新换发了本案被诉的证号为第0710312号承包证，承包期限自1998年1月1日起至2027年12月31日止。但该承包证只有填表机关即秀英区农林局的印章，没有发证机关即海口市秀英区人民政府加盖的印章。
涉案土地现由王基成在耕种管理使用，王基成认为涉案土地为其”祖宗地”，对秀英区农林局将其”祖宗地”承包发证至钟真文名下，侵犯其权益的行为不服，遂向原审法院提起行政诉讼。
原审判决认为：本案当事人争议的焦点是秀英区农林局向钟真文颁发承包证的行政行为是否合法。经庭审质证后确认，首先，根据钟真文提供的1953年由原琼山县人民政府颁发的《土地房屋所有证》，可以证明在当时涉案土地就由钟真文的家人在管理使用。该证可以作为土地合法来源的依据。其次，钟真文在1997年就与当时的村集体签订耕地承包合同，按时上缴粮食和承包金。秀英区农林局在钟真文原签订的耕地承包合同的基础上，依据我国农村土地承包经营权证管理办法的规定和钟真文的申请及村、镇上报的材料，经法定程序审核后重新向钟真文颁发本案被诉的证号为第0710312号承包证的行政行为并无不当。第三，根据现有证据，不能证明涉案土地属王基成”祖宗地”或是长期由王基成管理使用。对王基成提出的承包证上没有发证机关盖章应认定无效的理由；原审法院认为，秀英区农林局的颁证行为，是对钟真文土地承包行为的确认，不是土地确权。秀英区农林局作为当地县级地方农业行政主管部门，负责本地区土地承包证的备案、登记、发放等工作。承包证上没有加盖当地人民政府作为发证机关的印章，应属秀英区农林局工作失误，颁证程序存在瑕疵，但不能据此否定承包证的效力以及该颁证行为的合法性。综上，秀英区农林局的辩解理由成立，原审法院予以采纳；王基成起诉的理由与事实不符，且于法无据，原审法院不予支持，依法应予驳回。根据《中华人民共和国行政诉讼法》第六十九条之规定，判决如下：驳回王基成的诉讼请求。本案诉讼费人民币50元，由王基成负担。
上诉人王基成不服原审判决，提起上诉称：第一，原审判决认定事实不清，主要证据不足，自从羊山地区”土地回老家”政策实施以后，石山镇互换祖宗地已于1998年基本完毕，王基成换回的祖宗地”美忙”地，面积约4.6亩，自从1998年起至今一直耕作，缴纳该地农业税和领取该地的耕地补贴款，钟真文二十年来没有提出异议，2005年，秀英区农林局向钟真文等人颁发承包证过程中没有公开确界、丈量、公示，近来为了领取征地补偿款，才公开了”美忙”土地承包证，造成了严重社会问题，群众不服，政府有关人员也承认发包该证属工作失误，秀英区人民法院在充分调查取证后，明确承认了秀英区农林局发证工作失误，发证程序存在瑕疵。故秀英区人民法院理应依法判决撤销秀英区农林局发放”美忙”地的土地经营承包证，重新发证，秀英区农林局发放四个证是违反上级政府有关政策规定。第二，秀英区农林局颁发”美忙”土地经营承包证上没有加盖地方县级以上人民政府公章，但该证后面的注意事项的第二条，写有”此证须有地方县级以上人民政府盖章生效”，发证主体与一审判决矛盾。理应依法撤销秀英区农林局颁发的涉案”美忙”土地经营承包证，重新颁发有效证件。特提出上诉，请求撤销海口市秀英区人民法院作出的（2017）琼0105行初63号行政判决。
被上诉人秀英区农林局答辩称：一审判决驳回王基成的诉讼请求证据充分，认定事实、适用法律正确，应当予以维持，理由如下：
一、钟真文承包地来源合法，王基成的上诉理由缺乏事实依据。1953年，钟真文家庭已经取得了”美忙”地块的所有权，1997年，”美忙”地块在海口市秀英区石山镇和平村民委员会文风村民小组备案的《琼山市农业承包合同书》中也登记在钟真文名下，而且2005年并非重新发证，而是换证，2005年颁发给钟真文的承包经营权证与1997年原琼山市人民政府盖章的《海南省家庭耕地承包合同书》记载的承包地块、四至、面积是一致的。
二、涉案土地发证有瑕疵，但不能据此撤销承包经营权证。钟真文持有的涉案土地承包经营权证，没有加盖发证机关即海口市秀英区人民政府印章，应属发证工作中心工作失误，但不能否定钟真文的承包事实和涉案土地承包经营权的合法性。秀英区大部分的承包经营权证，包括王基成的承包经营权证，都没有盖政府的公章，如果以此为理由撤销，导致秀英区大部分的承包经营权证无效，会引发行政诉讼高潮，造成社会混乱。《中华人民共和国农村土地承包经营权证管理办法》第四条规定：”实行家庭承包经营的承包方，由县级以上地方人民政府颁发农村土地承包经营权证。实行其它方式承包经营的承包方，经依法登记，由县级以上地方人民政府颁发农村土地承包经营权证。县级以上地方人民政府农业行政主管部门负责农村土地承包经营权证的备案、登记、发放等具体工作”。根据以上规定，秀英区农林局作为农业行政主管部门将农村土地承包经营权证发放给钟真文没有超越权限，该行政行为合法有效。
三、秀英区农林局发放农村土地承包经营权证的行政行为证据确凿，适用法律、法规正确，符合法定程序。秀英区农林局根据《中华人民共和国农村土地承包经营权证管理办法》第七条的相关规定，依据第三人与村集体签订的承包合同，经村、镇报送相关材料，核实后，录入农村土地经营权证管理系统，依法为钟真文换发土地承包经营权证书，行政行为证据确凿，适用法律、法规正确，符合法定程序。
原审第三人钟真文陈述称：一审判决驳回王基成的诉讼请求证据充分，认定事实、适用法律正确，应当予以维持，理由如下：一、王基成的上诉理由缺乏事实依据。1953年，钟真文家庭已经取得了”美忙”地块的所有权。1997年，”美忙”地块在海口市秀英区石山镇和平村民委员会文风村民小组备案的《琼山市农业承包合同书》中也登记在钟真文名下。以上证据证明钟真文2005年的承包经营权证是有合法来源的。二、秀英区农林局发放农村土地承包经营权证行政行为证据确凿，适用法律、法规正确，符合法定程序。秀英区农林局根据《中华人民共和国农村土地承包经营权证管理办法》第七条的相关规定依法为钟真文换发土地承包经营权证书，行政行为证据确凿，适用法律、法规正确，符合法定程序。
原审第三人海口市秀英区石山镇和平村民委员会文风村民小组未作陈述。
王基成提起上诉后，原审法院已将原审判决所列证据随卷移送本院。二审期间，王基成向本院提交了一份2003年10月8日的收款收据和一份2004年8月24日的收据，证明1997年至今，涉案土地一直由王基成在管理，缴交公粮和承包金。秀英区农林局发表如下质证意见：1.王基成提交的证据上的落款时间是2003年、2004年，不属于新证据；2.王基成提交的是复印件没有原件核对，不能证明复印件的真实性；3.从该两份收据无法看出是否是涉案土地，该两份收据上写明的是缴交水利费和冬修，并没有缴交公粮和承包金。钟真文同意秀英区农林局的质证意见，补充：该两份收据没有表明是”美忙”地块，且收据上载明的干部工资与本案无关。经庭审质证，本院认证如下：王基成提交的上述两份证据均系复印件，且不是新证据，秀英区农林局及钟真文均提出异议，本院不予采信。
二审经审理查明的事实与一审查明的事实一致。
本院认为：本案的争议焦点是秀英区农林局为钟真文颁发0710312号承包证的行政行为是否合法。《中华人民共和国农村土地承包经营权证管理办法》第二条第一款规定：农村土地承包经营权证是农村土地承包合同生效后，国家依法确认承包方享有土地承包经营权的法律凭证。本案中，秀英区农林局为钟真文颁发0710312号承包证依据的是原琼山县石山镇和平村委会文风经济合作社于1997年10月1日与钟真文签订的《琼山市农业承包合同书》和《海南省家庭承包耕地合同书》，0710312号承包证上记载的事项与家庭承包合同书、承包耕地登记表记载的事项一致，故秀英区农林局为钟真文颁发0710312号承包证的行政行为认定事实清楚。秀英区农林局于2005年为钟真文颁发涉案承包证是换证行为，符合法律规定，且程序并无不当，因此，秀英区农林局为钟真文颁发涉案承包证认定事实清楚，程序合法，适用法律正确，是合法的行政行为。涉案承包证虽存在未加盖当地人民政府印章的瑕疵，但该瑕疵系颁证当时普遍存在的问题，从维护地区承包经营秩序稳定性的角度考虑，不宜以该瑕疵为由确认涉案颁证行为违法，而且，王基成亦未提供其承包涉案土地的有效承包合同，故其上诉理由不成立，上诉请求应予驳回。综上，原审判决认定事实清楚，处理结果并无不当，应予维持。依照《中华人民共和国行政诉讼法》第八十九条第一款第（一）项的规定，判决如下：
驳回上诉，维持原判。
本案二审案件受理费人民币50元，由上诉人王基成负担。
本判决为终审判决。
审判长潘娜
审判员钟山
审判员何芳
二〇一七年十月三十一日
法官助理文静
书记员江楠
附法律法规条文：
中华人民共和国农村土地承包经营权证管理办法
第二条农村土地承包经营权证是农村土地承包合同生效后，国家依法确认承包方享有土地承包经营权的法律凭证。
农村土地承包经营权证只限承包方使用。
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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