海南省屯昌县人民法院
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（2016）琼9022行初27号
原告陈风飞，男，汉族，1955年12月11日出生，住屯昌县。
委托代理人陈风吉，男，汉族，1966年1月5日出生，住屯昌县。系原告陈风飞之弟。
委托代理人王瑜，男，汉族，1950年1月11日出生，住屯昌县。
被告屯昌县屯城镇人民政府，住所地：屯昌县屯城镇双拥路48号。
法定代表人王绥文，镇长。
第三人李国权，男，汉族，1961年10月20日出生，住屯昌县。
原告陈风飞诉被告屯昌县屯城镇人民政府，第三人李国权履行法定职责一案，于2016年12月9日向本院提起行政诉讼，本院受理后于2016年12月12日向被告以及第三人送达了起诉状副本及应诉通知书，本院依法组成合议庭，于2017年1月4日公开开庭审理了本案，原告陈风飞及其委托代理人陈风吉、王瑜，第三人李国权到庭参加了诉讼。被告屯昌县屯城镇人民政府经本院传票传唤，无正当理由拒不到庭参加诉讼。本案现已审理终结。
原告陈风飞于2016年11月6日向被告屯昌县屯城镇人民政府提交《关于罗村桥北侧0.774亩土地确定经营使用权的申请》。被告屯昌县屯城镇人民政府于2016年11月30日作出《屯城镇人民政府关于陈风飞土地确定经营权答复书》，答复称：”你申请确权的0.744亩地块已被政府征用建设环西路，其中0.6亩征地补偿款经屯昌县人民法院判决已经拔付李开信，李国权。经海南省第一中级人民法院再审，海南省高级人民法院终审，均维持原判，我镇无法重新对该地块使用权再进行确权”。
原告陈风飞诉称，罗村桥北侧土墩田面积0.774亩（征用确认面积），其四至：东至李国轩、李国儒、李国平（三兄弟）地界；南至国雄（0.4亩)地界；西至李开信（0.4亩)地界；北至陈风云、陈风吉地界。农村体制下放时，第7社将该地分给李运清耕作，1987年李运清将该地让给李开清耕作。1992年原告以排沟（地名）置换的方式从李开清两个儿子李国才、李国福手中获得该地的经营使用权。该宗地置换后，原告一直种植水稻至2000年，后因槟榔果价格看好于2000年上半年改种槟榔，第三人将原告地面槟榔苗拔掉经村委会对李国权处罚500元给原告。2013年县政府征用该宗地建设环西路，第三人以持有屯昌县人民政府1997年12月31日颁发的农村承包权（屯府）第0711690号《中华人民共和国农村土地承包权证》面积0.6亩为由与原告发生纠纷。原告于2013年12月3日向被告申请处理，2014年9月7日屯城镇人民调解委员会作出《关于陈风飞与李国权之间土地纠纷的调处情况》，调解未能成功，被告未履行法定职责对涉案0.774亩土地争议作出处理决定。第三人不同意调解委员会调查情况，2014年7月将第七经济社诉至屯昌县人民法院，要求第七经济社支付涉案土地0.6亩土地征地款。屯昌县人民法院（2014）屯民初字第513号民事判决书认定原告0.774亩土地就是第三人持有90号土地证的土地，判决原告0.774亩土地中0.6亩土地征地款给第三人。原告认为这判决认定事实不清，适用法律错误，于2015年2月16日向海南省第一中级人民法院上诉。海南省第一中级人民法院以（2015）海南一中民一终字第263号民事判决书驳回上诉，维持原判。原告仍不服，于2015年7月3日向海南省高级人民法院申请再审，海南省高级人民法院以（2015）琼民申字第487号民事裁定书驳回陈风飞的再审申请。海南省第一中级人民法院判决书认为陈风飞对诉争土地尚未取得《农村土地承包经营权证》，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”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，人民法院应当告知其向有关行政主管部门申请解决。”因此，陈风飞请求该宗地使用权归其所有于法无据，其应向有关行政部门申请解决。海南省高级人民法院以（2015）琼民申字第487号民事裁定书也写到”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》的相关规定，陈风飞对其耕种的涉案征用地提起民事诉讼，因其未实际取得承包经营权，二审判决告知其应当向政府有关行政部门申请解决正确”。据此，原告于2016年11月6日向被告递交《关于罗村桥北侧0.774亩土地确定经营使用权的申请》，被告于2016年11月30日作出《屯城镇人民政府关于陈风飞土地确定经营权答复书》，答复称：”你申请确权的0.744亩地块已被政府征用建设环西路，其中0.6亩征地补偿款经屯昌县人民法院判决已经拔付李开信，李国权。经海南省第一中级人民法院再审，海南省高级人民法院终审，均维持原判，我镇无法重新对该地块使用权再进行确权”。原告认为这一答复违反《中华人民共和国土地管理法》第十六条及最高人民法院《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》第一条第二款条文，违背事实，是一种不依法行政的行为。原告为了维护0.774亩土地征地前的合法权益，依法依事实提起行政诉讼，要求判决撤销被告于2016年11月30日作出的答复书并请求判决被告屯昌县屯城镇人民政府针对原告提出的土地使用权确权申请作出处理决定。
被告屯昌县屯城镇人民政府辩称，原告称该地块是其通过土地置换从李国才、李国福手中获得的使用权，李国权提供的《海南省农村土地承包经营权证》中所注明的土地四至与该纠纷地块的三至不符。经我镇组织工作人员对该地块进行调查取证，该地块被政府征用建设环西路后，原告和李国权因该地块征地补偿款发生争议，向屯城镇调解委员会申请调解。调解过程中双方都不肯作出让步，调解未能成功，最后屯城镇调解委员会建议双方当事人通过法律程序解决该纠纷。李国权据此向屯昌县人民法院提起诉讼，请求屯新村委会第七村民小组将该地块征地补偿款给予拔付。屯昌县人民法院判决屯新村委会第七村民小组向李开信、李国权支付0.6亩土地补偿费27528.93元。判决后陈风飞不服，先后向海南省第一中级人民法院上诉和向海南省高级人民法院申请再审，均被驳回。2016年11月6日，申请人向我镇申请确认罗村桥北侧涉案0.774亩土地征用前的经营使用权。经我镇调查，申请人申请确权的0.744亩地块已被政府征用建设环西路，其中0.6亩征地补偿款经屯昌县人民法院判决已经拔付李开信，李国权。经海南省第一中级人民法院再审，海南省高级人民法院终审，均维持原判，我镇无法重新对该地块使用权再进行确权。综上所述，我镇政府对申请人作出的《屯城镇人民政府关于陈风飞土地确定经营权答复书》是实事求是且符合相关法律规定的，请求法院在查明事实的基础上维持《屯城镇人民政府关于陈风飞土地确定经营权答复书》。
第三人李国权述称，原告起诉被告屯昌县屯城镇人民政府与我无关，没有其他答辩意见。
原告为证明其主张，向法院提交的证据有：
证据1、原告身份证，证明原告陈风飞的主体资格；证据2、土地争议平面图，证明原告经营使用0.774亩，东至国儒、国轩、国平（三兄弟）地界，南至李国雄地，西至李开信0.4亩地界，北至陈风云、陈风吉地界。第三人0711690号土地证面积为0.6亩，其四至：东至国儒，南至公介岭，西至国连，北至风清。第三人持证地四至、面积与原告涉案地四至、面积不符、坐标位置不一致；证据3、屯城镇调委会2015年5月12日《证明书》，证明国土局提供征地彩色图的事实；证据4、第三人0711690号土地证，证明原告使用地面积0.774亩面积、四至与第三人土地证0.6亩四至面积不一致，第三人与原告涉案0.774亩四至坐标无关；证据5、编号0711690号海南省农村土地经营权证登记表，证明农业局提供第三人面积0.6亩，四至：东至国儒，南至公介岭，西至国连，北至风清的事实与原告0.774亩四至坐标无关；证据6、土地征用地上附着物及青苗补偿清册，证明0.774亩土地使用权为原告所有；证据7、2014年9月7日屯城镇调委会《调处情况》，证明0.774亩土地系原告使用的事实；证据8、李运清、李国才《证词》，证明原告耕作0.774亩地与李运清、李国才置换事实，经营权在《调处情况》中已认定；证据9、宗地面积汇总表，证明第三人持有0711690号土地证与原告现耕作0.774亩土地无关；证据10、2016年11月6日0.774亩土地使用权《申请书》，证明原告依法依规向被告申请0.774亩土地使用权的事实；证据11、2016年11月30日被告《答复》，证明被告对原告申请履行法定职责作出《处理决定书》，违反法律条文的答复是行政无作为；证据12、（2014）屯民初字第513号民事判决书，证明违反法律程序审理，运用法律条文错误，按照土地法的相关规定，个人与个人之间的土地争议，应先由乡镇政府解决，土地面积与四至不一致的，应按四至为准；证据13、（2015）海南一中民一终字第253号民事判决书，证明告知原告依法规向行政有关部门申请正确解决事实，被告没有按法规对涉案0.774亩作出《处理决定书》，属于行政不作为；证据14、（2015）琼民申字第487号民事裁定书，证明告知原告依法依规向行政有关部门申请对0.774亩土地的正确解决，被告没有按法规对涉案0.774亩土地作出《处理决定书》是行政不作为。第三人对原告所提供的14份证据未发表质证意见。
被告屯昌县屯城镇人民政府向法院提交的证据有：
证据1、屯昌县人民法院（2014）屯民初字第513号民事判决书，证明原告申请确权的0.744亩地块已被政府征用建设环西路，其中0.6亩征地补偿款经屯昌县人民法院判决已经拨付李开信、李国权；证据2、海南省第一中级人民法院（2015）海南一中民一终字第263号民事判决书，证明海南省第一中级人民法院作出驳回上诉，维持原判的判决；证据3、海南省高级人民法院（2015）琼民申字第487号民事裁定书，证明海南省高级人民法院驳回陈风飞的再审申请。
原告对被告所提供的3份证据的质证意见，对这3份证据的真实性、关联性无异议，合法性、证明内容有异议。第三人质证后对这3份证据的真实性、合法性、关联性及证明内容均无异议。
经庭审质证，本院对本案证据作出如下确认：原告所提供的14份证据中证据1、2、3、4、5、6、7、8、9、10、12、13、14内容真实，来源合法，与本案有关联性，被告所提供的3份证据与原告所提供的证据12、13、14内容一致，本院对上述证据的真实性、合法性、关联性予以确认。原告提供的证据11是被诉的行政行为，对此份证据的合法性将在本案中加以论述。
经审理查明，2012年12月，屯昌县人民政府征用屯城镇屯新村委会第七村民小组部分土地用于建设环西路。原告陈风飞与第三人李国权因被征用的一块0.774亩土地的使用权归属发生纠纷。2013年12月，原告陈风飞就该纠纷向屯城镇人民调解委员会申请调解。2014年8月8日，李开信、李国权向本院提起民事诉讼，要求屯新村委会第七村民小组支付争议地的土地补偿费。本院审理后于2015年1月21日作出（2014）屯民初字第513号民事判决书。判决后陈风飞不服，先后向海南省第一中级人民法院提起上诉及向海南省高级人民法院申请再审，均被驳回。2016年11月6日，原告陈风飞向被告递交一份《关于罗村桥北侧0.774亩土地确定经营使用权的申请》。被告于2016年11月30日作出一份《屯城镇人民政府关于陈风飞土地确定经营权答复书》并送达给原告。该答复书载明：”你申请确权的0.744亩地块已被政府征用建设环西路，其中0.6亩征地补偿款经屯昌县人民法院判决已经拔付李开信，李国权。经海南省第一中级人民法院再审，海南省高级人民法院终审，均维持原判，我镇无法重新对该地块使用权再进行确权”。原告收到答复书后认为被告不作为遂提起行政诉讼，要求判决撤销被告于2016年11月30日作出的答复书并请求判决被告屯昌县屯城镇人民政府针对原告提出的土地使用权确权申请作出处理决定。
本院认为，根据各方当事人的诉辩意见，本院对本案的争议焦点归纳并评析如下：一、被告作出的《屯城镇人民政府关于陈风飞土地确定经营权答复书》是否履行了法定职责？程序是否合法？应否撤销？《中华人民共和国土地管理法》第十六条第一款规定：”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”。《土地权属争议调查处理办法》第十三条第一款、第三款规定：”对申请人提出的土地权属争议调查处理的申请，国土资源行政主管部门应当依照本办法第十条的规定进行审查，并在收到申请书之日起7个工作日内提出是否受理的意见。认为不应当受理的，应当及时拟定不予受理建议书，报同级人民政府作出不予受理决定”。据此，屯昌县屯城镇人民政府具有对陈风飞提出的土地权属争议申请予以处理的法定职责。本案中，原告陈风飞向被告提交的是确定土地使用权的申请，根据国土资厅发[2005]57号《国土资源部办公厅关于印发土地权属争议案件文书格式的通知》的规定，人民政府对土地权属争议作出的处理方式主要有：土地权属争议案件受理或不予受理决定书、土地权属争议案件调解书、土地权属争议案件行政决定书。原告陈风飞向被告提出的是履责申请，被告经审查如果认为原告的申请不符合受理条件应当在收到申请书之日起7个工作日内作出不予受理决定。被告以信访答复的形式拒绝履责，在答复书中又未交代申请人提起行政复议或行政诉讼的救济途径，规避司法审查，不符合法定程序，显属不当，应予撤销。二、关于被告对原告提出的确权申请应否受理及作出处理决定的问题。因该请求系屯城镇人民政府的行政职权范畴，屯城镇人民政府应就该申请予以重新处理，故对陈风飞的该诉讼请求不予支持。综上，依照《中华人民共和国行政诉讼法》第五十八条、第七十条第（三）项、第（六）项、第七十二条、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》第五十六条第（四）项之规定，判决如下：
一、撤销被告屯昌县屯城镇人民政府于2016年11月30日作出的《屯城镇人民政府关于陈风飞土地确定经营权答复书》，责令被告屯昌县屯城镇人民政府在本判决生效后的法定期限内对陈风飞提出的土地权属争议申请重新作出处理决定；
二、驳回原告陈风飞的其他诉讼请求。
案件受理费人民币50元，由被告屯昌县屯城镇人民政府负担。
如对本判决不服，可在接到本判决书后十五日内，向本院递交上诉状，并按对方当事人的人数或代表人的人数提出副本，上诉于海南省第一中级人民法院。
审判长黎家雄
人民陪审员冯桂杰
人民陪审员杨应锋
法官助理王进
法官助理王进
书记员陈茜茜
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