海南省第二中级人民法院
p t ; ” > 民 事 裁 定 书
（2018）琼97民终104号
海南省第二中级人民法院
民事裁定书
（2018）琼97民终104号
上诉人（一审原告）：邱亚光，男，1945年10月21日出生，汉族，现住海南省儋州市。
委托诉讼代理人：孙国碧，男，1965年8月21日出生，汉族，现住海南省儋州市。
被上诉人（一审被告）：李亚强，男，1954年5月18日出生，汉族，现住海南省儋州市。
委托诉讼代理人：吴典，海南上哲律师事务所律师。
委托诉讼代理人：陈雪梅，海南上哲律师事务所律师。
一审第三人：儋州市南丰镇松门村委会那联村小组，住所地海南省儋州市那大镇南丰镇松门村民委员会那联村。
法定代表人：邱振强，该村民小组组长。
上诉人邱亚光因与被上诉人李亚强、一审第三人儋州市南丰镇松门村委会那联村小组（以下简称那联村小组）排除妨害纠纷一案，不服海南省儋州市人民法院（2017）琼9003民初4003号民事裁定，向本院提起上诉。本院依法组成合议庭对本案进行了审理，现已审理终结。
上诉人邱亚光上诉请求：1.判令李亚强停止侵害，排除妨碍，自行清除其在被砍伐面积2.46亩的竹林地块上种植的花梨树苗、竹笋等，并将土地使用权归还邱亚光；2.案件受理费由李亚强负担。
事实与理由如下：一审裁定认定事实不清，适用法律错误。1980年以来，该争议地一直由邱亚光经营使用，主要经营竹林，竹林归邱亚光所有。李亚强以袓宗地为由，于2013年5～6月间擅自砍伐邱亚光竹林，种上花梨树苗及竹林，引起土地权属争议。根据邱亚光的申请，南丰镇人民政府于2017年7月20日作出的儋南府信﹝2017﹞6号《关于邱亚光信访事项答复意见书》，该答复意见书建议那联村小组将争议地发包给邱亚光农户承包，李亚强以祖宗地名义要求将争议地由其承包经营违法，不予支持。南丰镇人民政府作出的答复意见书，其实就是行政机关确认争议地使用权的归属。确认是否享有承包经营权的纠纷是人民法院受理承包经营权纠纷中的主要类型之一，邱亚光的起诉属于人民法院受理的民事诉讼范围。综上所述，一审裁定驳回起诉错误，请求二审法院指令一审法院审理并作出实体判决。
被上诉人李亚强答辩称，根据相关土地法律法规规定，农村土地的使用要履行一定的法律程序。现争议地，南丰镇人民政府于2017年7月20日作出儋南府信﹝2017﹞6号《关于邱亚光信访事项答复意见书》，该答复意见书没有处理确权给邱亚光，其无权向法院提起侵权之诉，其诉讼请求无事实根据和法律依据，上诉无理，请求二审法院驳回上诉，维持原裁定。
一审第三人那联村小组未答辩。
邱亚光向一审法院请求：1.判令李亚强停止侵害，排除妨碍，自行清除其在被砍伐的面积2.46亩的竹林地块上种植的花梨树苗、竹笋等，并将土地使用权归还邱亚光；2.本案诉讼费用由李亚强负担。
一审法院认为，根据《最高人民法院关于审理涉及农村土地承包纠纷案件适用法律问题的解释》第一条第二款的规定，集体经济组织成员因未实际取得土地承包经营权提起民事诉讼的，应当依法向有关行政部门申请解决。争议地双方当事人均未办理土地承包经营手续，也未办理土地使用权证，南丰镇人民政府于2017年7月20日作出的儋南府信﹝2017﹞6号《关于邱亚光信访事项答复意见书》，该答复意见书只是建议那联村民委员会依照法定程序将争议的土地发包给邱亚光，政府尚未作出确权处理决定，邱亚光以该答复意见书作为其已经取得土地承包经营权，于法无据。邱亚光依应当向有关行政主管部门申请解决，本争议不属于民事诉讼的管辖范围。依照《中华人民共和国民事诉讼法》第一百二十四条第（三）项。第一百五十四条第一款第三项、《最高人民法院关于适用<中华人民共和国民事诉讼法>的解释》第二百零八条第三款的规定，裁定：驳回邱亚光的起诉。不收取案件受理费。
本院审理查明：邱亚光于1980年5月份以99元的价格向李亚强的堂兄李章发受让了位于儋州市××镇邱亚光宅基地旁（东北方向）上的竹林，并一直进行养护、管理、收益。2013年5～6月份，李亚强因建房需要，将上述地块上的竹子陆续进行砍伐，邱亚光知道以后向南丰派出所报案。经儋州市森林公安局调查及委托儋州市农业委员会和儋州市价格认证中心分别作出儋农委鉴字（2013）84号《儋州市农业委员会关于南丰镇松门村民委员会那联村竹园竹子被伐的技术鉴定书》和儋价鉴证字（2013）第1577号《儋州市价格认证中心关于被砍伐毛竹的价格鉴定结论》，确认争议土地面积2.46亩，被砍伐竹子数量3142株，被砍伐的竹子价值为6290元。为此，邱亚光提起诉讼，请求李亚强赔偿经济损失，（2015）海南二中民提字第2号民事判决书，判决李亚强赔偿邱亚光经济损失6290元，李亚强虽然向邱亚光赔偿了经济损失6290元，但双方当事人仍然对2.46亩土地使用权发生争议。根据邱亚光的申请，南丰镇人民政府于2017年7月20日作出儋南府信﹝2017﹞6号《关于邱亚光信访事项答复意见书》，处理意见为：建议那联村小组将争议地发包给邱亚光农户承包，李亚强以祖宗地名义要求将争议地由其承包经营违法，不予支持。至今那联村小组没有将争议地发包给邱亚光承包。
本院认为，本案争议的焦点是双方当事人争议的土地（2.46亩）是否属于人民法院受理民事诉讼的范围。《中华人民共和国土地管理法》（以下简称《土地管理法》）第十三条规定：依法登记的土地的所有权和使用权受法律保护，任何单位和个人不得侵犯。《土地管理法》第十六条规定：土地所有权和使用权争议，由当事人协商解决；协商不成的，由人民政府处理。个人之间的争议，由乡级人民政府处理或者县级以上人民政府处理。当事人对有关人民政府的处理决定不服的，可以自接到处理决定通知之日起三十日内，向人民法院起诉。在土地所有权和使用权争议解决之前，任何一方不得改变土地利用现状。根据上述法律规定精神，尚未依法登记、处理确权的土地发生权属争议，当双方当事人协商不成时，应当先由政府处理，不能直接向人民法院起诉，政府处理是前置程序。双方当事人发生土地权属争议后，当邱亚光申请人民政府处理土地权属争议时，南丰镇人民政府只是行文建议那联村小组将争议的土地发包给邱亚光，没有作出将争议的土地由邱亚光经营使用的权属处理决定，至今那联村小组也没有将争议的土地发包给邱亚光。邱亚光与李亚强争议的土地，邱亚光应先申请政府处理，如不服政府处理决定，可在规定的时间内，向人民法院提起行政诉讼，邱亚光不能直接向人民法院提起民事诉讼。一审裁定驳回邱亚光的起诉是恰当的。
综上所述，邱亚光的上诉请求不能成立，原审裁定认定事实清楚，适用法律正确。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、第一百七十一条规定，裁定如下：
驳回上诉，维持原裁定。
本裁定为终审裁决。
审判长符嘉华
审判员王永政
审判员黄心宇
二○一八年二月二十三日
书记员符国相
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。
第一百七十一条第二审人民法院对不服第一审人民法院裁定的上诉案件处理，一律使用裁定。
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