海南省海口市中级人民法院
p t ; ” > 行 政 裁 定 书
（2016）琼01行初28号
原告张来梅，女，汉族，1943年11月30日出生，住海口市。
委托代理人吴云，海南泽田律师事务所律师。
委托代理人刘成芳，海南泽田律师事务所律师助理。
被告海口市人民政府，住所地海口市长滨路市政府第二办公区。
法定代表人倪强，市长。
委托代理人龚晓琴，海口市人民政府法制局干部。
被告海口市国土资源局，住所地海口市长滨路市政府第二办公区15号北楼。
法定代表人盛林，局长。
以上两被告的共同委托代理人张礼，海南唐海律师事务所律师。
第三人海南凤凰地产有限公司，住所地海口市先烈路椰园新村综合楼。
法定代表人张冠彩，董事长。
委托代理人冯斌，海南川海律师事务所律师。
原告张来梅诉被告海口市人民政府（以下简称市政府）、海口市国土资源局（以下简称市国土局）、第三人海南凤凰地产有限公司（原海口市秀英土地房产开发公司，以下简称凤凰公司）土地行政登记一案，本院受理后，依法组成合议庭，公开开庭审理了本案，现已审理终结。
1998年，被告市政府给第三人凤凰公司颁发了海口市国用（籍）字第J0553号《国有土地使用证》（以下简称J0553号证），主要内容为：土地使用者”海口市秀英土地房产开发公司”；土地座落”海口市滨涯村”；土地用途”公建用地”；地号”11-30-03-28”；图号”12-95-2”；土地使用权面积”总面积5142.42平方米”。
原告张来梅诉称,原告是海口市龙华区滨涯村股份合作经济社（曾用名海口市新华区滨涯村）的村民。1994年4月，因海口市规划局秀英分局（以下简称秀英规划分局）拟在原告的自留地上建办公大楼，遂与原告协商征地事宜。原告在与秀英规划分局协商同意保有部分自留宅基地的前提下，于1994年4月26日与秀英规划分局就保留部分宅基地签订了《征地补充协议》后，原告才同意涉案土地征收，并就补偿款问题于1994年5月13日与秀英规划分局签订了《征地协议书》。两份协议书约定：秀英规划分局以每亩壹拾伍万元的补偿款征用滨涯村后公路东侧的村民自留地面积为8577.5㎡（12.8亩）；村民每户被征五分地以上者，补分120㎡面积作为宅基地，五分地以下者补分80㎡作为宅基地；补充协议同样具有法律效力。2013年政府拆迁滨涯村时，原告方得知争议地己于1998年1月18日登记到第三人名下。2014年7月23日，秀英规划分局出具《海口市规划局秀英分局关于张联永信访件的答复函》，并向原告出示了市土字[1994]0590号批复。原告才得知秀英规划分局未向市国土局提交《征地补充协议》，致使市国土局认为不需要负责安置被征地农民及补分宅基地，故出具市土字[1994]0590号批复，同意秀英规划分局核领《国有土地使用证》。后因秀英规划分局将涉案土地置换给第三人，故市政府根据前述批复，于1998年1月18日给第三人颁发了J0553号证，后变更为海口市国用（2007）第005799号《国有土地使用证》。综上，为维护原告的合法权益，特诉请人民法院：1、依法撤销被告市政府颁发的J0553号证；2、判令被告承担本案诉讼费用。
被告市政府及市国土局辩称，根据原告提供的《征地协议书》和《征地补充协议》，签约主体均为土地所有权人”海口市新华区滨涯村委会”。故被征地主体是滨涯村委会，而不是原告，且征地行为已经完成。原告作为村集体成员，与颁发J0553号证项下的国有土地使用权没有法律上利害关系，无权提起本案诉讼。据此，请求法院依法驳回原告的起诉。
第三人凤凰公司述称，原告之诉求焦点在于《征地协议书》中的补偿事宜，也就是协议的履行问题。而签订协议的当事人并非本案的原告及被告。在无特定证据的情形下，原告是否为本案的适格主体是值得商榷的。据此，第三人认为驳回原告的起诉为宜。
经审理查明，1994年5月13日，原海口市土地管理局（即被告市国土局的原名，以下统称市国土局）作为征地单位，原海口市新华区滨涯村民委员会（以下简称滨涯村）作为被征地单位，原海口市城市规划局秀英区规划国土监察分局（现名为海口市规划局秀英分局，以下统称秀英规划分局）作为用地单位，三方签署了《征土地协议书》，约定征收滨涯村12.866亩土地等事宜。同年7月29日，市国土局以秀英规划分局为行文对象，作出市土字[1994]0590号《海口市土地管理局关于依法出让土地给海口市规划局秀英区规划国土监察分局的批复》，以报经市政府审批同意为由，批复将征收滨涯村的8577.50平方米（合约12.866亩）土地中，除规划道路用地3435.10平方米以外的5142.40平方米土地（即涉案颁证用地），出让给秀英规划分局作为办公楼建设用地。之后，因秀英规划分局将涉案用地与原海口市秀英土地房产开发公司（即第三人凤凰公司的原名）名下用地进行交换，第三人遂就涉案用地申请登记。1998年，被告市政府就涉案用地，向第三人颁发了J0553号证。2007年9月6日，市政府根据第三人的更名登记申请，将J0553号证变更登记为海口市国用（2007）第005799号《国有土地使用证》，并注销了J0553号证。目前，第三人已将涉案用地交给海口市龙华区人民政府进行整合开发。至于原告所出示的《征地协议书》和《征地补充协议》，则是滨涯村与秀英规划分局在签署涉案《征土地协议书》之前签订的。
上述事实有《征土地协议书》、市土字[1994]0590号《海口市土地管理局关于依法出让土地给海口市规划局秀英区规划国土监察分局的批复》、市土字[1995]0283号《海口市土地管理局关于海口市秀英土地房产开发公司申请办理交换土地使用权手续的批复》、J0553号证、海口市国用（2007）第005799号《国有土地使用证》、《土地整合协议》、《征地协议书》、《征地补充协议》和庭审笔录在案为凭，足资认定。
本院认为，原告诉请撤销J0553号证，应当根据《中华人民共和国行政诉讼法》第二十五条的规定，证明其与颁证行为具有利害关系。本案中，涉案土地原属于滨涯村集体土地，后于1994年被征收为国有。目前，该征收行为已超过20年，且没有否定该征收行为效力的法律文书。原告不是涉案征地相关协议的签约主体，且未取得涉案土地相关权益。因此，原告与涉案颁证行为不具有利害关系，其原告主体资格不适格，应裁定驳回其起诉。据此，依照《中华人民共和国行政诉讼法》第四十九条第（一）项和《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）项之规定，裁定如下：
驳回原告张来梅的起诉。
本案不收取案件受理费。原告张来梅已预交的案件受理费50元，予以退还。
如不服本裁定，可在裁定书送达之日起十日内，向本院递交上诉状，并按对方当事人的人数提出副本，上诉于海南省高级人民法院。
审判长符汉平
审判员钟山
审判员何芳
书记员麦海燕
附相关法条：
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