海南省海口市中级人民法院
p t ; ” > 民 事 判 决 书
（2017）琼01民终3341号
上诉人（原审被告）：海口市秀英区海秀镇永庄村民委员会，住所地海口市秀英区海秀镇永庄村内。
法定代表人：陈江，该村委会主任。
委托诉讼代理人：万明，海南海新律师事务所律师。
委托诉讼代理人：黄种均，海南海新律师事务所律师。
被上诉人（原审原告）：肖新美，女，1972年4月13日出生，汉族，现住海口市。
委托诉讼代理人：王浩，海南嘉天律师事务所律师。
上诉人海口市秀英区海秀镇永庄村民委员会（以下简称永庄村委会）因与被上诉人肖新美侵害集体经济组织成员权益纠纷一案，不服海南省海口市秀英区人民法院（2017）琼0105民初1665号民事判决，向本院提起上诉。本院立案受理后，依法组成合议庭进行了审理。本案现已审理终结。
永庄村委会上诉请求：1.撤销海口市秀英区人民法院（2017）琼0105民初1665号民事判决第一项，依法判决驳回肖新美的诉讼请求；2.本案一、二审诉讼费用由肖新美承担。事实与理由：原判无视基本事实和法律，仅凭肖新美的口头陈述及其提供的户籍即认定其具有永庄村委会集体经济组织成员资格，属认定事实错误。根据最高院的司法解释以及海南省高院的意见（琼高法[2012]6号）的精神，”对农村集体经济组织成员资格的认定，以人民政府的征地补偿安置方案确定时是否以本集体经济组织的土地为基本生活保障为基本依据，兼顾是否具有本集体经济组织户籍以及是否在本集体经济组织形成较为固定的生产、生活作为判断标准。”是否以本村土地为基本生活保障是最主要的认定标准，也是肖新美必须举证证明的，但肖新美没有提供任何证据予以证明。一、原判案由确定错误，法律适用错误。一审法院确定的案由为侵害集体经济组织成员权益纠纷，这一认定与最高人民法院《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》（以下简称解释）相冲突，依据解释第一条第一款第一项之规定，本案案由应当属于承包地征收补偿费用分配纠纷，进而应适用土地管理法、农村土地承包法、最高人民法院关于农村土地承包的相关司法解释以及涉及农村土地承包的行政法规、地方性法规等。一审适用《海南省高级人民法院关于审理农村集体经济组织土地补偿费分配纠纷案件若干问题的意见（试行）》（以下简称意见）的相关规定，认定肖新美是否具有永庄村委会集体经济组织成员资格，属于对法律的误解，该意见并非法律，其也强调系供全省各级法院参考执行，一审法院以意见为法律依据属于适用法律错误。二、本案不属于人民法院管辖，一审法院受理本案明显错误。1.解释第一条第三款规定：集体经济组织成员就用于分配的土地补偿费数额提起的民事诉讼，人民法院不予受理。一审查明，肖新美已分配了5000元征地补偿款，其又诉请分配一定金额的补偿款，明显属于就土地补偿费数额提起的民事诉讼，人民法院依法不应受理。2.永庄村委会的征地补偿费分配方案，不但是三分之二以上的成员决议，按照土地承包法、村民委员会组织法等规定的民主议定程序制定，而且经过了镇政府的严格审查、核对、批准，是在法定的政府部门监督下制定实施，具有行政行为的色彩。根据国家关于农村土地承包的相关规定，乡镇一级人民政府是法定的管理部门，永庄村委会制定的分配方案是经过镇政府批准同意实施，肖新美需先通过行政诉讼推翻镇政府的行政行为，才能和永庄村委会一样作为平等的民事主体行使民事诉讼权利，一审法院受理本案是错误的。3.根据物权法第59条、63条之规定，土地补偿费的使用、分配办法应当依照法定程序经本集体成员决定，该决定侵害集体成员合法权益的，受侵害的集体成员可以请求人民法院予以撤销。根据上述规定，对于土地补偿费的分配方案，人民法院只能整体维持或者整体撤销，无权对分配方案的内容进行变更，肖新美诉请法院调整分配方案，于法无据。三、一审判决认定肖新美具有集体经济组织成员资格错误。1.解释第一条第二款规定：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，人民法院应告知其向有关行政主管部门申请解决。第二十四条规定：征地补偿安置方案确定时，已经具有本集体经济组织成员资格的人请求支付相应份额的，应予支持。”集体经济组织成员”与”具有本集体经济组织成员资格的人”是两个不同的法律概念。例如：户口在村里，有选举权、合作医疗保障等政治权利或经济权利的村民，如果没有土地承包经营权，就不具有分配征地补偿款的资格。最高院在对解释的说明当中，阐明了”是否具有集体经济组织成员资格，根据《立法法》的规定，只有全国人大及其常委会才有权利确定”，最高法院不具有此项权利。海南省高院的意见中，关于确定农村集体经济组织成员资格的标准，显然只具有非法律效力的参考价值。结合相关司法实践，是否具有集体经济组织成员资格，应参考以下三点：一是村民是否有土地承包经营权；二是是否经过三分之二以上村民认可；三是是否经过法定的承包土地管理部门即乡镇人民政府审查、批准、确认。广东省法院审查”外嫁女”案件基本上也是参考上述三点来认定成员资格，该标准更符合法律、法规、司法解释的精神。2.即使参照省高院的意见来认定成员资格，根据该意见第3条的规定，对农村集体经济组织成员资格的认定，以人民政府的征地补偿安置方案确定时是否以本集体经济组织的土地为基本生活保障为基本依据，兼顾是否具有本集体经济组织户籍以及是否在本集体经济组织形成较为固定的生产、生活作为判断标准。只有同时具备上述三个条件，才能取得集体经济组织成员资格。本案中，肖新美仅是户口登记在永庄村委会处，但其出嫁后就脱离了永庄村委会的集体经济组织，在嫁入地形成了固定的生产、生活，也不再以永庄村委会的土地为基本生活保障，对永庄村委会的集体土地不再享有权利，也没有继续履行村民的义务，其目前仅是户口登记在永庄村委会处，属于《意见》第12条规定的”空挂户”人员，应当认定其不具有集体经济组织成员资格。四、一审判决认定事实证据不足，未遵循传统习俗、公序良俗，导致错判。1.一审中肖新美提供嫁入地出具的证明，证明其一直生活在娘家，以娘家的土地为生，不住在男方家里，没有在嫁入地生产、生活，明显违背基本生活逻辑和日常生活方式，违背公序良俗原则。该证明还注明肖新美在嫁入地没有分配承包地和征地补偿款，明显违反《海南省实施农村土地承包法的办法》第11条”承包期内，妇女结婚，新居住地集体经济组织应当解决其承包土地”的规定，内容严重违法。一审判决轻易采信该证明，认定肖新美具有成员资格，违背了证据规则相关规定。2.传统习俗，是指人们在社会生活中逐渐形成的，从历史沿袭而巩固下来的，具有稳定的社会风俗和行为习俗。其中很多上升成为一种法定的、具有强制执行力的公序良俗。公序良俗是指民事主体的行为应当遵守公共秩序，符合善良习俗，不得违反国家的公共秩序和社会的一般道德。本案中，永庄村委会分配方案规定，娶进来的媳妇（即使没有依法登记）和非婚生子女，都当然的具有成员资格，是因为她们与男方一同生产、生活，是一种土地承包经营权的”实际取得”，而嫁出去的女儿，出嫁后随男方生产生活，就是她原土地承包经营权的”实际失去”。这种分配方案遵循了传统习俗和公序良俗，依法应当予以保护和认定，但一审判决根本没有考虑上述因素，仅根据户口登记，便认定肖新美具有成员资格，明显错误。五、一审判决认为”外嫁女”具有集体经济组织成员资格的标准，与本院2015年12月25日作出的（2015）海中法民申字第66号生效裁定相冲突。依据民诉法司法解释第九十三条第一款规定，已为人民法院发生法律效力的裁判所确认的事实当事人无须举证证明。综上，一审判决证据不足，认定事实和适用法律错误，导致错判，请求二审法院支持永庄村委会的上诉请求。
被上诉人肖新美辩称，一审法院认定事实清楚，适用法律正确，证据充分，程序合法，判决正确。
肖新美向一审法院起诉请求：1.永庄村委会向肖新美支付2014年1月27日征地补偿款4027元；2.永庄村委会向肖新美支付2014年4月10日征地补偿款1000元；3.永庄村委会向肖新美支付2015年1月30日征地补偿款23009元；4.永庄村委会向肖新美支付2015年4月24日征地补偿款1000元；5.永庄村委会向肖新美支付2015年5月29日征地补偿款17610元；6.永庄村委会向肖新美支付2015年7月27日征地补偿款10000元；7.永庄村委会向肖新美支付2015年11月11日征地补偿款18656元；8.永庄村委会向肖新美支付2016年2月5日征地补偿款10000元；9.永庄村委会向肖新美支付2016年4月11日征地补偿款1000元；合计86302元；10.本案诉讼费由永庄村委会承担。
一审法院认定事实：对于当事人双方没有争议的事实，予以确认。肖新美户口所在地为海口市××区号,户别为农业家庭户口。永庄村委会部分土地被征用后，永庄村委会于2014年1月27日向村民每人发放征地补偿款4027元，于2014年4月10日向村民每人发放征地补偿款1000元，于2015年1月30日向村民每人发放征地补偿款23009元，于2015年4月24日向村民每人发放征地补偿款1000元，于2015年5月29日向村民每人发放征地补偿款17610元，于2015年7月27日向村民每人发放征地补偿款10000元，于2015年11月11日向村民每人发放征地补偿款18656元，于2016年2月5日向村民每人发放征地补偿款10000元，于2016年4月11日向村民每人发放征地补偿款1000元。永庄村委会以肖新美系”外嫁女”为由，未全额向肖新美发放上述征地补偿款，遂成讼。
一审法院认为，依据《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》第二十四条之规定，农村集体经济组织或村民委员会、村民小组，可以依照法律规定的民主议定程序，决定在本集体经济组织内部分配已经收到的土地补偿款及其他土地收益款；征地补偿款安置方案确定时已经具有本集体经济组织成员资格的人，请求支付相应份额的，应予以支持。本案中，肖新美以其具有永庄村委会村集体经济组织成员资格为由，起诉要求永庄村委会向其支付相应份额的土地补偿款。由此可见，肖新美是否具有永庄村委会村集体经济组织成员资格的问题，是本案中的主要争议点，亦系判定肖新美可否获取相应的土地补偿款的关键及先决问题。肖新美落户在海口市××区，户别为农业家庭户口。肖新美自出生开始就落户在永庄村委会，从小就在该村生活和从事生产劳动，肖新美在永庄村委会里享有农村土地承包经营权，应认定肖新美具有永庄村委会集体经济组织成员资格。因此，一审法院认定肖新美具有永庄村委会村集体经济组织成员资格。但是，肖新美的起诉时间为2017年3月22日，根据《中华人民共和国民法通则》第一百三十五条的规定，向人民法院请求保护民事权利的诉讼时效期间为2年。因此肖新美主张2015年3月22日之前的征地补偿款28036元已超过诉讼时效，不予支持。肖新美主张2015年3月22日之后的征地补偿款58266元于法有据，予以支持。综上，依据《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》第二十四条之规定，判决：一、永庄村委会于本判决发生法律效力之日起十日内向肖新美支付2015年4月24日、2015年5月29日、2015年7月27日、2015年11月11日、2016年2月5日、2016年4月11日发放的征地补偿款共计58266元；二、驳回肖新美的其他诉讼请求。如未按本判决指定的期间履行给付金钱义务，应当依照《中华人民共和国民事诉讼法》第二百五十三条之规定，加倍支付迟延履行期间的债务利息。案件受理费979元，由肖新美负担351元，永庄村委会负担628元。
二审期间，双方当事人均未提交新证据。
本院在（2017）琼01民终3339号案中已查明：永庄村委会的政府征地补偿安置方案确定时间为2013年4月23日和2013年10月10日。
二审查明：肖新美系肖帝会为承包方代表的永庄村委会土地承包经营权共有人之一。
本院对一审查明的事实予以确认。
本院认为：《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》第二十四条规定：”农村集体经济组织或者村民委员会、村民小组，可以依照法律规定的民主议定程序，决定在本集体经济组织内部分配已经收到的土地补偿费。征地补偿安置方案确定时已经具有本集体经济组织成员资格的人，请求支付相应份额的，应予支持。”因此，肖新美在政府征地补偿安置方案发布时是否具有永庄村委会集体经济组织成员资格是认定其应否分得征地补偿款的关键问题，亦是本案的争议焦点。根据本案查明的事实，肖新美在永庄村委会出生、长大，户籍登记在永庄村委会，原始取得永庄村委会的集体经济组织成员资格，并在永庄村委会分配有承包地，并无证据证明肖新美登记结婚，亦无证据证明其已取得其他集体经济组织成员资格或获得其他替代性生活保障，因此，永庄村委会的土地仍为肖新美的基本生活保障，不宜轻易认定肖新美丧失永庄村委会的集体经济组织成员资格。一审法院认定肖新美具有永庄村委会集体经济组织成员资格并支持其诉请中未超出诉讼时效的征地补偿款部分并无不当，本院予以维持。永庄村委会上诉主张肖新美不具备永庄村委会集体经济组织成员资格，不应获得永庄村委会征地补偿款分配无事实依据，本院不予支持。
综上，永庄村委会的上诉请求不能成立，应予驳回；一审判决认定事实清楚，适用法律正确，应予维持。依照《中华人民共和国民事诉讼法》第一百七十条第一款第一项规定，判决如下：
驳回上诉，维持原判。
二审案件受理费1257元，由海口市秀英区海秀镇永庄村民委员会负担。
本判决为终审判决。
审判长陈璐
审判员何姿玲
审判员王法坚
书记员张洁
附相关法律法规条文：
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