三亚市城郊人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼0271行初126号
原告陈光栋，男，1946年10月30日出生(公民身份号码：×××)，汉族，住三亚市。
原告陈光标，男，1959年9月10日出生(公民身份号码：×××)，汉族，住三亚市。
委托诉讼代理人林如果、林明宇，海南中海律师事务所律师。
被告三亚市规划局崖州规划分局，住所地三亚市崖州区崖州大道区政府内。
法定代表人卢伟，局长。
委托诉讼代理人杨珥、吴文德，三亚市规划局崖州规划分局工作人员。
第三人：陈銮美，女，1986年6月17日出生(公民身份号码：×××)，汉族，住三亚市，
委托诉讼代理人蔡君华、徐建平，海南大兴天泰（三亚）律师事务所律师。
原告陈光栋、陈光标诉被告三亚市规划局崖州规划分局，第三人陈銮美建设规划行政许可一案，于2017年7月5日向本院提起行政诉讼。本院于2017年7月5日受理后，于2017年8月3日向被告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8月25日公开开庭审理了本案。原告陈光栋、陈光标及其委托诉讼代理人林如果、林明宇，被告三亚市规划局崖州规划分局的委托诉讼代理人杨珥、吴文德，第三人陈銮美的委托诉讼代理人蔡君华到庭参加诉讼。本案现已审理终结。
原告陈光栋、陈光标诉称，2016年10月5目，第三人不顾原告反对，利用与原告争议的宅基地向村小组和村委会申请建房许可。村小组做出虚假意见上报被告，被告未经法定程序调查和审核，对不符合法定条件的第三人颁发乡字第20161233号《乡村建设规划许可证》。原告认为，被告的具体行政行为不合法，理由如下：一、具体行政行为缺乏事实根据。该涉案宅基地为原告祖传旧屋所在宅基地，原告持有土改时崖县人民政府颁发的合法宅基地证。2008年该宅基地确权时因有争议未能确权，且地上有原告的旧屋和围墙、树木。被告颁证之前未调查核实基本事实，也未核准村小组、村委会是否履行召开村民代表大会表决、是否在村里公示等法规程序，而是私下暗箱操作的事实，违反了《海南省农村居民建房审批办法》第六条、第七条和第八条第（二）项的有关规定。对未依法依规取得宅基地使用权，甚至在宅基地权属有争议和村委会未开会通过建房申请及做虚假意见的情况下，实施具体行政行为缺乏事实根据而不合法。二、具体行政行为违反法定程序。第三人陈銮美申请建房，村小组及村委会暗箱操作并做虚假证明情况下，被告颁证之前不但不调查、不审核，也没有依照《海南省农村居民建房审批办法》第八条第五项将审核结果在建房户所在村公示栏进行公示，征求意见，就直接批准颁发了《乡村建设规划许可证》，其具体行政行为违反法定程序而不合法。三、具体行政行为适用法律不当。被告适用《城乡规划法》第四十一条规定实施颁证的具体行政行为不当。该条第二款是一个授权地方立法条款，应依据海南省的具体法规规章决定法律具体适用。被告的具体行政行为有规避海南省法规规章之嫌，属适用法律不当。四、被告具体行政行为不合法造成后果严重。农村建房依法应当取得规划许可、用地审批和建设施工许可。但本案第三人在争议地土建房，在没有用地审批和建设施工许可情况下利用被告疏于监管的漏洞，以被告颁发的《乡村建设规划许可证》为由，不听法院、派出所的保持现状不得施工的制止，偷偷地抢着施工，现在已经建成主体三层。第三人陈銮美的抢建行为是违法的，这与被告的违法颁发许可证和缺乏监管有直接关联。由此可能导致矛盾的激化和巨大的财产损失，为宅基地争议的公平公正解决埋下隐患。综上所述，原告认为：被告具体行政行为缺乏事实根据和法律根据，是不合法的具体行政行为。为了监督被告依法行政，维护原告合法权益，特具文起诉，请求：1、判令撤销被告颁发的乡字第20161233号《乡村建设规划许可证》。2、本案的所有诉讼费用由被告承担。
本院认为，《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”。从现有证据来看，本案原告并不是本案被诉行政行为的相对人，因此，原告只有证明自己系本案的利害关系人，才能依据上述二十五条的规定具备提起行政诉讼的原告主体资格。《行政诉讼法》第二条第一款规定：”公民、法人或者其他组织认为行政机关和行政机关工作人员的行政行为侵犯其合法权益，有权依照本法向人民法院提起诉讼”。可见，所谓利害关系人，必须是拥有合法权益的行政相关人。也就是说，原告只有证明自己拥有合法的权益，才能成为利害关系人，才有权提起本案的行政诉讼。原告主张第三人的建房用地为其祖屋宅基地，被诉行政行为许可第三人在该宅基地上建房侵犯了其对该宅基地的合法使用权。对此原告应举证证明自己是第三人建房用地的合法使用权人，否则不能成为本案的利害关系人、不能提起本案行政诉讼。原告为证明其为第三人建房用地的合法使有权人而提供的证据原崖县人民政府1953年向其父亲颁发的土地房产所有证，该土地房产所有证只有确认土地权属的证据效力，不能作为合法取得土地使用权的物权凭证，也不能证明该土地房产所有证上所记载的土地与第三人建房用地具有关联性。原告提交的其他证据也不足以证明原告系第三人建房用地的合法使用权人。原告提供的现有证据均不能证明原告系第三人建房用地的合法使用权人，因而不能证明被诉行政行为侵害了其合法取得的土地使用权，不能证明原告为被诉行政行为的利害关系人。因此，原告不是被诉行政行为的利害关系人，依法不具有提起本案行政诉讼的原告主体资格，对其起诉，依法应予以驳回。依照《中华人民共和国行政诉讼法》第二十五条第一款、第四十九条；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：
驳回原告陈光栋、陈光标的起诉。
案件受理费50元（原告已预缴），退还原告陈光栋、陈光标。
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，上诉于海南省三亚市中级人民法院。
审判长蔡智勇
人民陪审员郑辉仁
人民陪审员梁海旺
二〇一七年九月十九日
书记员廖少玲
附相关法律条文：
《中华人民共和国行政诉讼法》
第二条公民、法人或者其他组织认为行政机关和行政机关工作人员的行政行为侵犯其合法权益，有权依照本法向人民法院提起诉讼。
前款所称行政行为，包括法律、法规、规章授权的组织作出的行政行为。
第二十五条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。
有权提起诉讼的公民死亡，其近亲属可以提起诉讼。
有权提起诉讼的法人或者其他组织终止，承受其权利的法人或者其他组织可以提起诉讼。
第四十九条提起诉讼应当符合下列条件：
（一）原告是符合本法第二十五条规定的公民、法人或者其他组织；
（二）有明确的被告；
（三）有具体的诉讼请求和事实根据；
（四）属于人民法院受案范围和受诉人民法院管辖。
《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》
第三条有下列情形之一，已经立案的，应当裁定驳回起诉：
（一）不符合行政诉讼法第四十九条规定的；
（二）超过法定起诉期限且无正当理由的；
（三）错列被告且拒绝变更的；
（四）未按照法律规定由法定代理人、指定代理人、代表人为诉讼行为的；
（五）未按照法律、法规规定先向行政机关申请复议的；
（六）重复起诉的；
（七）撤回起诉后无正当理由再行起诉的；
（八）行政行为对其合法权益明显不产生实际影响的；
(九）诉讼标的已为生效裁判所羁束的；
（十）不符合其他法定起诉条件的。
人民法院经过阅卷、调查和询问当事人，认为不需要开庭审理的，可以迳行裁定驳回起诉。
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