海南省高级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼行终1630号
海南省高级人民法院
行政判决书
（2017）琼行终1630号
上诉人（原审第三人）黎绍波，男，1964年8月15日出生，汉族，现住三亚市。
上诉人（原审第三人）黎绍雄，男，1974年8月15日出生，汉族，现住三亚市。
被上诉人（原审原告）黎绍光，男，1957年2月7日出生，汉族，现住三亚市。
委托代理人黎公培，男，1987年2月5日出生，汉族，保亭黎族自治县人民法院工作人员，系黎绍光的儿子。
被上诉人（原审原告）黎绍清，男，1966年11月1日出生，汉族，现住三亚市。
原审被告三亚市人民政府，住所地三亚市新风路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。
委托代理人蔡汝宇，三亚市国土资源局工作人员。
原审第三人三亚市崖州区文明社区居民委员会，住所地三亚市崖州区文明社区居民委员会。
负责人邢真，主任。
上诉人黎绍波、黎绍雄因其与被上诉人黎绍光、黎绍清，原审被告三亚市人民政府（以下简称三亚市政府），原审第三人三亚市崖州区文明社区居民委员会（与原三亚市崖城镇文明社区居民委员会统称为文明居委会）土地行政登记一案，不服海南省三亚市中级人民法院（2017）琼02行初61号行政判决，向本院提起上诉。本院依法组成合议庭，对案件进行了审理，现已审理终结。
2015年2月2日，经黎绍波、黎绍雄申请，三亚市政府给黎绍波、黎绍雄颁发了三集土房（2015）字第00053号《集体土地房屋权证》（以下简称00053号证），该证记载：土地座落于三亚市崖城镇文明居委会，面积235.81㎡；地号为33-06-1499；四至范围东至林超、林海英，西至文明居委会，南至黄龙利，北至道路。黎绍光、黎绍清不服，提起诉讼，请求撤销三亚市政府给黎绍波、黎绍雄颁发的00053号证。
原审查明，黎绍波、黎绍雄与黎绍光、黎绍清系同胞兄弟，四人母亲陈宗认于1997年12月去世，父亲是黎某。黎某夫妇共有黎绍光、黎亚丽、黎绍波、黎绍清、黎绍琼、黎绍雄、黎绍杰七个子女。黎亚丽、黎绍琼、黎绍杰明确表示不参加本案诉讼。
本案争议地位于三亚市崖州区文明居委会，面积235.81㎡。上世纪七十年代，黎绍波、黎绍雄、黎绍光、黎绍清的父亲黎某经原崖县港西公社允许，填土取得涉案土地。1977年，黎某在涉案土地上打下地基，并长期进行家庭种植。2010年，经黎某同意，黎绍波、黎绍雄使用该土地的一半建造房屋。2014年12月3日，黎绍波、黎绍雄向原三亚市国土环境资源局（以下简称三亚市国土局）申请对该235.81㎡土地进行确权登记。三亚市国土局受理该申请后，对涉案土地进行了地籍调查。此前，文明居委会于2014年12月2日向三亚市国土局出具《土地权属来源证明》，证明涉案土地系该居委会于2004年8月划拨给黎绍波、黎绍雄使用的宅基地，同意给予办理确权登记手续。2014年12月10日，原三亚市崖州区筹备组在该《土地权属来源证明》上盖章。2014年12月3日，相邻土地使用权人林超、林海英、黄龙利，文明居委会原负责人麦传发以及黎绍波、黎绍雄在《地籍调查表》上签名确认土地界址。2015年1月16日，三亚市国土局对涉案土地的初审结果在《三亚日报》上进行了公告。经公告无异议后，三亚市政府于2015年2月2日批准同意对涉案土地进行初始登记，并给黎绍波、黎绍雄颁发了00053号证，确认黎绍波、黎绍雄对涉案土地的使用权。2016年10月8日，黎绍光、黎绍清申请在黎绍波、黎绍雄所建房屋的旁边建房。2017年3月27日，三亚市崖州国土资源管理分局向崖州规划分局出具《关于给予黎绍光、黎绍清两人出具土地规划意见的复函》，函告：”经查，黎绍光、黎绍清两人申请建房报建土地面积117.58㎡，土地利用总体规划为农村居民点用地，土地现状为村庄，目前该地块尚未登记确权。备注：占黎绍波、黎绍雄两人土地证红线”。黎绍光、黎绍清称此时才知道三亚市政府已将涉案土地全部发证到黎绍波、黎绍雄名下。2017年4月19日，黎绍光、黎绍清提起本案诉讼，要求撤销00053号证。目前，涉案土地未建房部分种有花梨木。黎绍波、黎绍雄与黎绍光、黎绍清均认可该树木是由黎某所种植，且在发证前由黎某长期使用涉案土地。
原审庭审中，证人黎某出庭作证称，黎绍波仅告诉其要颁证，并要求其与邻居一起去现场指界，但未说清楚要将涉案土地全部颁证到黎绍波名下，否则，其是不会同意的。
原审认为，一、关于黎绍光、黎绍清是否具有本案原告诉讼主体资格的问题。《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”。经查，本案争议地在发证前由黎绍波、黎绍雄和黎绍光、黎绍清的父亲黎某长期使用，黎绍波、黎绍雄和黎绍光、黎绍清系同胞兄弟，三亚市政府将黎某长期使用的土地全部发证到黎绍波、黎绍雄名下，同为黎某儿子的黎绍光、黎绍清与被诉行政行为有利害关系，有权提起本案诉讼，是本案适格原告。二、关于黎绍光、黎绍清与提起本案诉讼是否超过法定起诉期限的问题。《中华人民共和国行政诉讼法》第四十六条第一款规定：”公民、法人或者其他组织直接向人民法院提起诉讼的，应当自知道或者应当知道作出行政行为之日起六个月内提出。法律另有规定的除外。”本案中，三亚市政府不能举证证明黎绍光、黎绍清何时知道其给黎绍波、黎绍雄颁发被诉00053号证的内容，黎绍光、黎绍清主张其于2017年3月27日知道被诉行政行为应予采信，黎绍光、黎绍清提起本案诉讼未超过法定起诉期限。三、关于三亚市政府给黎绍波、黎绍雄颁发00053号证依据是否充分，程序是否合法的问题。《土地登记办法》第九条第一款、第三款规定，申请人申请土地登记，应当如实向国土资源行政主管部门提供土地权属来源证明等有关材料和反映真实情况，并对申请材料实质内容的真实性负责。第十四条第一款规定：”国土资源行政主管部门应当对受理的土地登记申请进行审查”。本案中，黎绍波、黎绍雄向三亚市国土局申请对涉案土地进行确权登记时，文明居委会出具的《土地权属来源证明》记载涉案土地系该居委会于2004年8月划给黎绍波、黎绍雄使用的宅基地，该证明内容与审理查明的涉案土地系黎某于上世纪七十年代填土而来且长期进行家庭种植的事实不相符。因此，三亚市政府在对发证土地来源未尽审慎核查义务的情况下，依据文明居委会出具的《土地权属来源证明》将涉案土地全部确权登记到黎绍波、黎绍雄名下，并颁发00053号证，颁证依据不足，依法应予撤销。黎绍光、黎绍清诉求撤销00053号证应予支持。依照《中华人民共和国行政诉讼法》第七十条第（一）项之规定，判决撤销00053号证。案件受理费50元，由三亚市政府负担。
上诉人黎绍波、黎绍雄上诉称，一、黎绍光、黎绍清不是文明居委会的村民，不具有集体经济组织成员资格，原审未查明该事实，认定事实不清。二、黎绍光、黎绍清未实际使用涉案土地，又不具备集体经济组织成员资格，与本案被诉行政行为没有利害关系，原审认定黎绍光、黎绍清具有诉讼主体资格，认定事实不清。三、本案讼争土地一直由父亲黎某实际使用，土地确权指界时黎某到场且未提出任何异议，三亚市政府颁证确权时已尽到合理审查义务，原审认定三亚市政府未尽审查义务认定事实不清，适用法律错误。请求撤销原判，驳回黎绍光、黎绍清的诉讼请求。
被上诉人黎绍光、黎绍清答辩称，一、本案争议土地为宅基地，黎绍波、黎绍雄主张为开荒地，与事实不符。二、黎绍光、黎绍清具有本案诉讼主体资格。首先，本案争议土地使用权为家庭共有财产，依法应由全体共有人同意方能处分。黎绍波、黎绍雄未经其他家庭成员同意，擅自处分共有宅基地，损害了黎绍光、黎绍清的合法权益。其次，黎绍光、黎绍清与本案被诉行政行为具有法律上的利害关系，正是因为三亚市政府错误将本案争议土地发证到黎绍波、黎绍雄名下，导致黎绍光、黎绍清的报建申请未能完成。第三，黎绍波为城镇户口，长期在三亚市内居住和工作，其于2010年使用本案争议土地的一半建房并办理了00053号证，证明其有在涉案土地上报建和办证的主体资格，黎绍光、黎绍清同样也具有使用本案争议土地的权利。报建过程中对于户籍的认定是政府部门的行政职能，不属于法院的审理范围，三亚市政府、文明居委会也未对黎绍光、黎绍清的报建资格提出异议。三、三亚市政府颁发00053号证的程序违法。首先，《土地权属来源证明》的内容与事实不符。黎绍波、黎绍雄也承认本案争议土地使用权为父亲黎某于1976年以家庭为单位申请的，《土地权属来源证明》称该土地为2004年分配给黎绍波、黎绍雄使用，与事实不符。其次，黎绍波、黎绍雄未举证证明相关工作人员在指界过程中到场，应承担举证不能的法律后果。第三，三亚市政府未提交黎绍波、黎绍雄的申请书和会议记录，未举证证明依照《三亚市农村宅基地管理办法》的规定，由黎绍波、黎绍雄提交了书面申请并召开了村民会议。综上，原审认定事实清楚，适用法律正确，请求维持原判。
原审被告三亚市政府答辩称，文明居委会出具的《土地权属来源证明》记载本案争议土地使用权为2004年划拨给黎绍波、黎绍雄使用，该内容与原审庭审中黎绍波、黎绍雄、黎绍光、黎绍清认可的由其父亲黎某申请取得的事实不符，由法院依法予以认定。
原审第三人文明居委会未提交书面意见。
二审中，黎绍波、黎绍雄提交了光盘及记载该光盘内容的《黎某同意我们办该证的证据》、落款时间为2016年8月8日的《关于立家庭财产分配书》，拟证明黎某同意其二人办理00053号证及黎绍光、黎绍清于2016年8月8日即应知道其二人办理了00053号证。本院认为，黎绍光、黎绍清在一审申请黎某出庭作证，黎某已出庭并就涉及本案办证问题陈述意见，其证言亦经当庭质证，黎绍波、黎绍雄在二审提交黎某录音材料亦为证明有关办证问题，其无正当事由未在一审提供，根据《最高人民法院关于行政诉讼证据若干问题的规定》第七条及第五十二条的规定，本院不予接纳；黎绍波、黎绍雄无正当事由未在一审提供落款时间为2016年8月8日的《关于立家庭财产分配书》，其在二审提供亦不符合上述规定，本院亦不予接纳。此外，黎绍波、黎绍雄在本院询问时还申请其胞弟黎绍杰出庭作证。本院认为，黎绍波、黎绍雄未在一审申请黎绍杰出庭作证，根据《最高人民法院关于行政诉讼证据若干问题的规定》第七条及第四十三条的规定，对其无正当事由未在举证期限届满前提出申请证人出证作证的申请，本院不予准许。
二审查明的事实与原审法院查明的事实一致。
本院认为，一、黎绍波、黎绍雄与黎绍光、黎绍清系同胞兄弟，其父亲黎某自上世纪七十年代经原崖县港西公社允许使用涉案土地后，即在该土地上打下地基并长期用于家庭种植，2010年，黎绍波、黎绍雄亦经黎某同意，才使用该土地的一半建造房屋，黎某出庭作证时表示其不同意将该土地全部颁证到黎绍波、黎绍雄名下。因此，三亚市政府将黎某家庭使用的涉案土地全部颁证给黎绍波、黎绍雄的行政行为，与同为黎某儿子的黎绍光、黎绍清有利害关系。原审根据《中华人民共和国行政诉讼法》第二十五条第一款的规定，认定黎绍光、黎绍清具备原告主体资格，并无不当。
二、《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》第二十七条第（一）项规定，被告认为原告起诉超过起诉期限的，由被告承担举证责任。本案中，三亚市政府未能提供证据证明黎绍光、黎绍清何时知道或应当知道其颁发00053号证，现无证据否定黎绍光、黎绍清关于其于2017年3月27日知道被诉行政行为的主张，故原审认定黎绍光、黎绍清的起诉未超过法定起诉期限，并无不当。
三、根据本案查明的事实，黎绍波、黎绍雄向三亚市政府申请颁证时提交的文明居委会出具的证明该居委会于2004年8月将涉案土地划给黎绍波、黎绍雄作为宅基地使用的《土地权属来源证明》与事实不相符，三亚市政府据此给黎绍波、黎绍雄颁发00053号证，认定事实不清。原审认定三亚市政府在颁证时未尽审慎审查义务，颁证依据不足，并撤销00053号证，并无不当。
综上，原审判决认定事实清楚，适用法律正确，应予维持。黎绍波、黎绍雄的上诉请求和理由不成立，应予驳回。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。
二审案件受理费50元，由上诉人黎绍波、黎绍雄共同负担。
本判决为终审判决。
审判长王华
审判员聂海波
审判员刘利红
[盖章位置]
法官助理周磊
书记员黄蜀
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