海南省高级人民法院
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（2017）琼行终1763号
海南省高级人民法院
行政判决书
（2017）琼行终1763号
上诉人（原审第三人）赵明辉，男，35岁，汉族，现住三亚市。
委托代理人孙臣，广东财富东方律师事务所律师。
被上诉人（原审原告）林葆康，男，60岁，汉族，现住三亚市。
委托代理人苏文山，海南中海律师事务所律师。
原审被告三亚市人民政府，住所地三亚市新风街257号。
法定代表人吴岩峻，市长。
委托代理人郑大平，三亚市法制办公室工作人员。
委托代理人邢锐，海南大弘律师事务所律师。
上诉人赵明辉因被上诉人林葆康及原审被告三亚市人民政府（下简称三亚市政府）农业行政登记管理一案，不服海南省三亚市中级人民法院（2017）琼02行初14号行政判决，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。
三亚市政府2014年12月30日给赵明辉颁发了三亚市（县）农地承包权（2014）第04121042号农村土地承包经营权证（下简称第04121042号权证）。林葆康不服该颁证行为，向原审法院提起行政诉讼，请求依法撤销三亚市政府向赵明辉颁发的04121042号权证。
原审查明，根据已发生法律效力的（2017）琼行终107号行政判决（以下简称107号生效行政判决）认定的事实，林葆康早在上世纪90年代就平整涉案土地并在该地上打井灌溉，直至2014年赵明辉等四户村民阻止其继续使用该土地，林葆康系涉案土地的实际使用人。2013年12月20日，三亚市政府根据赵明辉与村民小组签订的土地承包合同，将涉案葫芦园争议地中的4亩土地登记在赵明辉名下，并为其颁发第04121042号权证。
原审认为，依据《中华人民共和国农村土地承包经营权证管理办法》第二条、第三条之规定，承包方只有在承包合同生效，实际取得土地承包经营权后，登记部门才能核发农村土地承包经营权证，对承包方合法取得的土地承包经营权予以确定。本案中，三亚市政府为赵明辉核发承包经营权证时，涉案土地一直由林葆康占有、经营使用，林葆康系涉案土地的实际使用人，赵明辉并未实际取得土地承包经营权。故三亚市政府仅根据赵明辉与村民小组签订的土地承包合同，在赵明辉并未实际取得土地承包经营权的情形下，2014年12月30日将涉案葫芦园争议地中的4亩土地登记在赵明辉名下，并为其颁发第04121042号权证的行政行为，主要证据不足，违反行政法规的规定。林葆康要求撤销第04121042号权证的诉讼请求，合法有据，该院依法予以支持。依照《中华人民共和国行政诉讼法》第七十条第（一）项、第（二）项之规定，判决撤销三亚市政府给赵明辉颁发的04121042号权证。
上诉人赵明辉上诉称，原审判决认定事实错误。第一，林葆康对涉案土地不存在开荒行为；第二，林葆康并没有于上世纪90年代实际使用涉案土地，林葆康只是在涉案土地抢种；第三，涉案土地最早由水南村委会使用，1982年涉案土地被分给独村二组使用，第一轮土地承包时发包给了独村二组村民使用，第二轮土地承包时办理了土地承包经营权证，不存在林葆康是涉案土地实际使用人的说法。综上，请求二审法院撤销原审判决，驳回林葆康的诉讼请求。
被上诉人林葆康答辩称，赵明辉要求撤销原审判决，没有事实与法律依据，原审判决认定事实正确。一、107号生效行政判决确认涉案土地林葆康从上世纪70年代末起一直耕种至今，不存在林葆康抢种的事实。二、涉案土地的所有权证已撤销，其上的四个承包经营权证没有事实基础，原审判决撤销四个承包经营权证有事实和法律依据。综上，请求二审法院驳回赵明辉的上诉，维持原判。
原审被告三亚市政府陈述称，基本事实是涉案土地的所有权证被撤销了，请二审法院依法判决。
二审查明，1.根据107号生效行政判决，2004年11月，经水南村委会申请，三亚市政府将本案林葆康主张的葫芦园确权给水南村委会，向水南水委会颁发崖城镇集有（2004）字第1626号《集体土地所有证》（以下简称1626号证）。2014年7月25日，三亚市政府将葫芦园再确权给了独村一、二组，并颁发三亚集有（2014）字第06348号《集体土地所有证》（以下简称06348号证）。2.2013年10月10日，赵明辉与水南村独村二组签订《农村土地承包合同》，将涉案葫芦园中的5.43亩土地发包给赵明辉承包。3.2017年4月20日，独村一、二组持有的06348号证被107号生效行政判决所撤销。目前，涉案葫芦园尚未确权。4.赵明辉名下的04121042号权证载明，赵明辉承包的地块共三块，分别是水胶田0.65亩；郞草坡田0.94亩；葫芦田5.43亩。
二审查明的其他事实与原审法院认定的事实一致。
本院认为，土地承包经营权是依附于土地所有权上的一项用益物权，土地所有权丧失，其上承包经营权则失去了权利的基础。本案中,独村一、二组持有的06348号证因被生效判决撤销，两组享有的涉案葫芦园的所有权丧失，即不再具有发包该土地的资格，赵明辉作为独村二组的组员，亦没有承包的资格。涉案葫芦园只有待三亚市政府确权后，由土地所有权人再行发包。因赵明辉持有的04121029号权证下登记了三块地，林葆康仅主张一直经营使用的是葫芦园，故本案撤销04121029号权证下关于葫芦田地块的承包登记事项。综上，原审法院认定部分事实不清，适用法律和处理结果错误，应予以纠正。赵明辉的上诉请求和理由无事实根据和法律依据，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（二）项之规定，判决如下：
一、撤销海南省三亚市中级人民法院（2017）琼02行初14号行政判决；
二、撤销赵明辉持有的三亚市（县）农地承包权（2014）第04121042号农村土地承包经营权证中关于葫芦田的承包登记事项。
二审案件受理费50元，由上诉人赵明辉负担。
本判决为终审判决。
审判长刘利红
审判员王华
审判员聂海波
二○一七年十二月二十日
书记员黄蜀
附：本判决适用的相关法律依据
《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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