海南省高级人民法院
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（2017）琼行终160号
上诉人（原审原告）：华尔顿（福建）集团有限责任公司。住所地：福建省泉州市丰泽区田安北路东侧汇源大厦*幢**楼。
法定代表人:陈诗毅，该公司董事长。
委托诉讼代理人:专磊，海南嘉天律师事务所律师。
被上诉人（原审被告）：澄迈县人民政府。住所地：海南省澄迈县金江镇文化北路***号。
法定代表人:吉兆民，该县县长。
委托诉讼代理人:廖波，海南瑞来律师事务所律师。
被上诉人（原审被告）：澄迈县国土资源局。住所地：海南省澄迈县金江镇金马大道东侧。
法定代表人：陈孝义，该局局长。
委托诉讼代理人：吴淑梁，澄迈县国土资源局工作人员。
委托诉讼代理人：杜聪，海南法立信律师事务所律师。
原审第三人：澄迈三和房地产开发有限公司。住所地：海南省澄迈县老城经济开发区国社岭路段。
法定代表人：陈霖，该公司执行董事。
上诉人华尔顿（福建）集团有限责任公司（以下简称华尔顿公司）因与被上诉人澄迈县人民政府（以下简称澄迈县政府）、澄迈县国土资源局（以下简称澄迈县国土局）以及原审第三人澄迈三和房地产开发有限公司（以下简称澄迈三和公司）颁发国有土地使用证一案，不服海南省第一中级人民法院（2016）琼96行初202号行政裁定，向本院提起上诉。本院于2017年2月28日立案后依法组成合议庭对本案进行了审理，现已审理终结。
一审法院经审理查明,2010年6月10日，案外人海南三和实业投资有限公司（以下简称海南三和公司）与华尔顿公司签订了一份《房地产开发项目前期合作协议书》（以下简称《合作协议》），约定：海南三和公司提供涉案土地及办理涉案土地的项目立项、国有土地使用证、房地产项目开发的经营资质，华尔顿公司提供总额为3亿元的投资款合作开发房地产项目。2010年6月26日，海南三和公司向澄迈县政府提出对涉案土地向其登记发证的申请。海南三和实业投资有限公司澄迈分公司（以下简称海南三和澄迈分公司）于2012年及2013年多次向澄迈县政府及澄迈县国土局提出对涉案土地登记发证的申请。因澄迈县政府及澄迈县国土局对上述申请未作出处理，海南三和公司及海南三和澄迈分公司于2014年向人民法院提起诉讼，请求判令澄迈县政府及澄迈县国土局依法为海南三和澄迈分公司办理涉案土地的国有土地使用证。2014年12月25日，海南省高级人民法院经审理后作出（2014）琼行终字第155号行政判决（以下简称第155号行政判决），该生效判决认定海南三和公司及海南三和澄迈分公司申请登记发证的240亩土地权属来源清楚并判决责令澄迈县政府和澄迈县国土局在判决生效之日起60日内就海南三和澄迈分公司申请办理涉案土地登记事项依法作出处理。2015年3月8日，海南三和公司与海南三和澄迈分公司共同向澄迈县政府提交《关于将海南三和公司盈滨半岛阳光温泉家园项目240亩土地证及相关登记办理到澄迈三和公司名下的申请书》，申请将涉案的240亩土地使用权登记到澄迈三和公司名下。2015年4月11日，澄迈县政府作出澄府函[2015]107号《关于同意将土地使用权办理到澄迈三和公司的函》，同意将涉案土地使用权办理到澄迈三和公司名下。2016年4月20日，澄迈三和公司向澄迈县国土局申请办理涉案土地的权属登记。经对澄迈三和公司提交的申请材料及涉案土地的权属、地籍情况进行调查核实后，澄迈县政府于2016年6月29日颁发老城国用（2016）第1679号《国有土地使用证》（以下简称第1679号《国土证》），将涉案的240亩土地中的189.2亩土地使用权登记确认给澄迈三和公司。2016年9月29日，华尔顿公司以澄迈县政府的上述颁证行为侵犯其合法权益为由向一审法院提起诉讼，请求撤销澄迈县政府给澄迈三和公司颁发的第1679号《国土证》。
一审法院另查明，海南省工商行政管理局企业机读档案登记资料记载，华尔顿公司为海南三和公司的股东之一，出资比例为45%。澄迈三和公司系海南三和公司在澄迈县成立的全资子公司。
一审法院认为，根据案件查明的事实，澄迈县政府根据第155号行政判决、海南三和公司与海南三和澄迈分公司提交的将涉案的240亩土地相关登记办理到澄迈三和公司名下的申请书、澄迈三和公司的土地登记申请及土地部门的地籍调查等材料，于2016年6月29日给澄迈三和公司颁发第1679号《国土证》。因此，澄迈县政府系依据海南三和公司及海南三和澄迈分公司的申请而作出上述颁证行政行为。《中华人民共和国行政诉讼法》第二十五条第一款规定：”行政行为的相对人以及其他与行政行为有利害关系的公民、法人或者其他组织，有权提起诉讼。”第四十九条规定：”提起诉讼应当符合下列条件：（一）原告是符合本法第二十五条规定的公民、法人或者其他组织；（二）有明确的被告；（三）有具体的诉讼请求和事实根据；（四）属于人民法院受案范围和受诉人民法院管辖。”《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》第十八条规定：”股份制企业的股东大会、股东代表大会、董事会等认为行政机关作出的具体行政行为侵犯企业经营自主权的，可以企业名义提起诉讼。”澄迈县政府的颁证行政行为并未处分华尔顿公司主张的合作开发权及华尔顿公司作为海南三和公司股东享有的相应权利。华尔顿公司作为海南三和公司的股东，如认为澄迈县政府的颁证行政行为侵犯企业合法权益的，应以海南三和公司的名义提起诉讼，而不能以其自己的名义提起本案诉讼。综上，华尔顿公司不具备本案原告主体资格，其起诉不符合法定起诉条件，应当裁定驳回起诉。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》第三条第一款第一、十项之规定，一审法院裁定驳回华尔顿公司的起诉。
华尔顿公司不服一审裁定，上诉称，一、一审裁定适用《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》第十八条的规定，认定上诉人应以海南三和公司的名义提起诉讼，而不能以自己的名义提起诉讼，属于适用法律错误。本案中海南三和公司是有限责任公司，上诉人也不是该公司的权力机关，且该规定不是强制性规定，该规定与《中华人民共和国行政诉讼法》第二十五条关于原告资格的规定不冲突，一审裁定显然将该规定视为强制性规定，属于对法律的错误适用。二、上诉人与涉案颁证行为有利害关系，是本案的适格原告。上诉人投入8600万元与海南三和公司合作开发涉案土地，并成为了海南三和公司的股东，但在政府批文和生效判决都已确定涉案土地使用权人为海南三和澄迈分公司的情况下，二被上诉人将涉案土地登记到澄迈三和公司的名下，并给澄迈三和公司颁发了第1679号《国土证》。海南三和澄迈分公司是海南三和公司的分支机构，而澄迈三和公司是另一独立法人，二被上诉人的错误发证行为导致上诉人在投入巨额资金的情况下无法直接参与土地的开发、经营，严重损害上诉人的合法权益。上诉人是本案适格原告，有权对涉案颁证行为提起诉讼。综上，请求二审法院撤销一审裁定，指令一审法院继续审理本案。
被上诉人澄迈县政府答辩称，一、澄迈县政府的颁证行为并未侵犯上诉人的合法权益，上诉人不是本案适格的原告。上诉人是海南三和公司的股东，澄迈县政府的颁证行为并未处分上诉人主张的合作开发权及其作为海南三和公司股东享有的相应权利，其原告主体资格不适格。二、澄迈县政府给原审第三人颁证是基于海南三和澄迈分公司的申请而进行的，被诉颁证行为事实清楚、程序合法。综上，一审裁定认定事实清楚，适用法律正确，请求二审法院予以维持。
被上诉人澄迈县国土局答辩称，一、海南三和公司与海南三和澄迈分公司申请将涉案土地登记到澄迈三和公司名下，澄迈县政府为澄迈三和公司颁证事实清楚、程序合法。二、澄迈县国土局不是本案适格被告，颁证的主体是澄迈县政府，澄迈县国土局是政府的职能部门，本案适格被告仅是澄迈县政府。三、上诉人与本案颁证行为没有法律上的利害关系，不是本案适格的原告。一审裁定认定事实清楚，适用法律正确，请求二审法院驳回上诉人的上诉请求。
原审第三人澄迈三和公司陈述称，其同意澄迈县政府和澄迈县国土局的答辩意见。华尔顿公司未支付股权转让款，不是海南三和公司的股东。一审裁定适用法律正确，请求二审法院予以维持。
本院二审审理过程中，澄迈三和公司提交了以下证据：1．海南省海口市琼州公证处出具的《公证书》；2．华尔顿公司8600万元支出用途清单；3．杨灿明与华尔顿公司签订的《股权转让协议》。澄迈三和公司提交上述证据用于证明华尔顿公司未向海南三和公司支付股权转让款，华尔顿公司不是海南三和公司的股东。经本院二审质证，华尔顿公司、澄迈县政府、澄迈县国土局均认为该三份证据与本案没有关联性。本院认为，华尔顿公司是否依约向海南三和公司支付股权转让款不属于本案审理的范围，亦不能作为认定华尔顿公司是否具有海南三和公司股东资格的依据，澄迈三和公司提交的上述三份证据与本案没有关联性，本院不予采纳。
本院对一审法院查明的事实予以确认。
本院认为，本案的争议焦点是上诉人华尔顿公司与被上诉人澄迈县政府给原审第三人澄迈三和公司颁发第1679号《国土证》的行政行为是否具有利害关系，华尔顿公司是否具有提起本案诉讼的原告主体资格。《中华人民共和国行政诉讼法》第二十五条第一款规定：”行政行为的相对人以及其他与行政行为有利害关系的公民、法人或者其他组织，有权提起诉讼。”本案被诉颁证行为系澄迈县政府依据海南三和公司及海南三和澄迈分公司的申请而作出的行政行为，该颁证行为并未处分华尔顿公司主张的合作开发权及其作为海南三和公司股东享有的相应权利。华尔顿公司不是涉案土地的使用权人或者实际使用人，其所主张的股东权益及合作开发权益相对于被诉颁证行为来说只是一种间接利益，缺乏法律上的特定性，被诉颁证行为未对其合法权益造成直接影响，华尔顿公司与被诉颁证行为不存在行政诉讼中的利害关系，不具有提起本案诉讼的原告主体资格。华尔顿公司如认为其股东权益及合作开发权益受到海南三和公司的侵害，或者认为海南三和公司的合法权益受到被诉颁证行为的侵害，均可通过其他途径解决，华尔顿公司不能以自己的名义提起本案行政诉讼。综上，一审裁定以华尔顿公司不具有适格的诉讼主体资格为由驳回其起诉并无不当，应予维持。华尔顿公司的上诉主张不能成立，本院不予支持。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之规定，裁定如下：
驳回上诉，维持原裁定。
本裁定为终审裁定。
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审判长孔琼
审判员叶珊茹
审判员魏文豪
法官助理李宗帅
法官助理李宗帅
书记员闵泽帅
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