海南省高级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼行终1753号
海南省高级人民法院
行政判决书
（2017）琼行终1753号
上诉人（原审被告）儋州市人民政府，住所地儋州市那大镇中兴大道。
法定代表人朱洪武，市长。
委托代理人符定福，儋州市法制办公室工作人员。
委托代理人唐符力，儋州市国土资源局工作人员。
上诉人（原审第三人）赵景助，男，1954年11月16日出生，汉族，住儋州市。
被上诉人（原审原告）赵景位，男，1964年12月5日出生，汉族，住儋州市。
委托代理人张传任，海南林源律师事务所律师。
被上诉人（原审原告）赵景光，男，1960年10月20日出生，汉族。
被上诉人（原审原告）赵元助，男，1952年12月20日出生，汉族，住儋州市。
上诉人儋州市人民政府（以下简称儋州市政府）、赵景助因与被上诉人赵景位、赵景光、赵元助（以下简称赵景位等3人）土地行政登记一案，不服海南省第二中级人民法院（2016）琼97行初202号行政判决，向本院提起上诉。本院依法组成合议庭，对本案进行了审理，现已审理终结。
本案被诉行政行为：儋州市政府于2010年12月31日给赵景助颁发了儋集用（2010）第09480号《集体土地使用证》（以下简称第09480号土地证），载明土地使用权人为赵景助，土地所有权人为中和镇黄江村黄江经济合作社，土地位于儋州市××镇，地号×××，地类（用途）为农村宅基地，使用权类型为批准拨用宅基地，使用权面积159.22㎡。赵景位等3人不服，提起本案诉讼，请求撤销第09480号土地证。
原审查明，本案争议地位于儋州市××镇经济合作社（以下简称黄江经济社）。经现场勘查，争议地是块空地，面积约为3.13平方米（长约6.25米，宽约0.5米）。2010年12月31日，儋州市政府向赵景助颁发了第09480号土地证。该证登记的土地包括了本案争议地。在儋州市政府颁证前，赵景助的房屋已建成且墙体相连，本案争议地在其所建瓦房后面，至今一直是块空地。赵景位等3人的老房子在拆除前，其房屋大门位于赵景助所建瓦房后面，即在本案争议地西面。赵景位等3人认为儋州市政府将其部分土地和通道土地的使用权登记给赵景助，侵犯了其合法权益，遂提起本案诉讼，请求撤销儋州市政府给赵景助颁发的第09480号土地证。
原审另查明，赵景位、赵景光和赵元助是同胞兄弟。儋州市政府在进行地籍调查时没有通知赵景位等3人进行指界。
原审认为，本案的争议焦点是儋州市政府将争议地登记发证给赵景助的事实是否清楚，颁证程序是否合法。根据《土地登记规则》第十三条”土地管理部门负责组织辖区内的地籍调查。地籍调查规程由国家土地管理局制定”和《城镇地籍调查规程》第3.2.6.1条”界址的认定必须由本宗地及相邻宗地使用者亲自到现场共同指界”的规定，儋州市政府在进行地籍调查时应当通知相邻宗地使用者到现场共同指界。本案中，从查明的事实来看，赵景位等3人是赵景助的邻居，而儋州市政府在进行地籍调查时却没有通知赵景位等3人到现场共同指界，其颁证程序显然违反法定程序。且从现场勘查的情况看，本案争议地不在赵景助的建房范围内，而是在赵景助所建房屋背后，儋州市政府所提交的证据不足以证明赵景助对该地享有使用权。另外，结合赵景位等3人所提交的其老房子被拆除前的照片来看，本案争议地属于通道用地，儋州市政府在登记该地使用权时应当通知相邻人共同指界，在审核确认该地权属后才能进行登记发证。因此，由于儋州市政府颁发第09480号土地证违反法定程序，导致其将争议地登记发证给赵景助的主要证据不足，对其颁证行为应予撤销。儋州市政府辩称赵景位等3人的起诉已超过法定期限，但由于其所提交的证据不足以证明赵景位等3人知道或者应当知道其作出的颁证行为具体内容的时间，故对该抗辩理由不予采纳。综上，儋州市政府颁发第09480号土地证的主要证据不足，违反法定程序，应予撤销。赵景位等3人诉请理由成立，予以支持。依照《中华人民共和国行政诉讼法》第七十条第（一）项、第（三）项的规定，判决撤销儋州市政府颁发的第09480号土地证。案件受理费50元，由儋州市政府负担。
儋州市政府上诉称，一、原审判决关于儋州市政府颁发第09480号土地证主要证据不足的认定错误。赵景助与赵景位等3人是邻居，两家中间间隔有一块长约6.25米、宽约1.2米（面积约7.5平方米）的空地，作为两家出入使用。赵景位等3人家庭原在该处建有大门，赵景助家庭在该处也开有侧门。该空地不属于赵景位等3人家庭的宅基地范围，其所有权、使用权原属黄江经济社。赵景助在2010年3月16日申请土地登记后，儋州市土地管理部门依法进行地籍调查，相邻的村民赵桂章、赵春成及黄江经济社签名盖章确认了土地界线，黄江经济社还出具了《土地权属来源证明》，儋州市中和镇黄江村委会和儋州市中和镇人民政府均签署了”情况属实，同意上报”的意见。上述事实证明，儋州市政府颁发第09480号土地证事实清楚，证据确凿充分。二、原审判决关于颁证程序违法的认定错误。赵景助与赵景位等3人两家之间的空地属黄江经济社所有，在地籍调查时，儋州市政府已通知其现场指界，该经济社也在地籍调查表上加盖公章确认了颁证宗地界线。儋州市政府没有义务通知赵景位等3人共同指界，原审判决据此认定颁证程序违法，没有依据。综上所述，原审判决认定事实不清，证据不足，判决结果错误，请求撤销原审判决，改判驳回赵景位等3人的诉讼请求。
赵景助上诉称，争议地块是一条通道，由双方当时各让出一半作为通道使用，并在该通道两侧各自建有旧的进出门。颁证时，村委会对颁证宗地的界线予以盖章确认，且赵景位等3人在公示期间亦未提出异议，故儋州市政府的颁证行为合法。赵景助是按照第09480号土地证登记的范围来使用土地，现赵景位等3人欲将全部通道用地占为己有，因赵景助不同意而引发纠纷。综上，请求撤销原审判决，驳回赵景位等3人的诉讼请求。
赵景位等3人未提交书面答辩意见。
本院经审理查明的事实与原审判决认定的事实一致。本院另查明，第09480号土地证项下土地的西至界线是赵景助与赵景位等3人用地的相邻界线，该界线按建筑物的情况可分为南北两部分。其中，北半段界线（J1至J9，长6.02米）是根据赵景助所建瓦房（现存）的外墙所确定，该瓦房西侧原为赵景位的旧瓦屋（现已拆除，两家庭房屋的墙体紧贴）；南半段界线（J9至J8，长6.16米）是J1至J9连线的延长线，东距赵景助所建建筑物的墙体0.94米。本案争议地即为南半段界线东侧与赵景助实际用地之间的空地。
本院认为，《土地登记规则》第六条规定：”土地登记依照下列程序进行：（一）土地登记申请；（二）地籍调查；（三）权属审核；（四）注册登记；（五）颁发或者更换土地证书”；第十三条规定：”土地管理部门负责组织辖区内的地籍调查。地籍调查规程由国家土地管理局制定”。《城镇地籍调查规程》第3.2.6.1条规定：”界址的认定必须由本宗地及相邻宗地使用者亲自到现场共同指界。”本案中，赵景位等3人是赵景助申请登记土地的相邻宗地实际使用人，依照上述规定，在赵景助提出土地登记申请后，儋州市政府所属国土部门应组织赵景助及包括赵景位等3人在内的相邻宗地使用者到现场共同指界。然而，根据本案查明事实，儋州市政府所属国土部门在地籍调查时并未依法通知赵景位等3人现场指界确认相邻界线，导致作为通道用地的争议地被登记至赵景助名下，影响到赵景位等3人相邻权。因此，儋州市政府颁发第09480号土地证违反法定程序，并导致其颁证行为认定事实不清，对该颁证行为依法应予撤销。儋州市政府和赵景助以黄江经济社和黄江村民委员会均在《土地权属来源证明》中签章确认了土地界线为由，上诉主张颁证程序合法。但是，两集体经济组织均不是土地实际使用者，其不能代替赵景位等3人确认土地界线，儋州市政府和赵景助的上述主张不能成立。至于争议地使用权归属，相关当事人可通过协商或土地争议处理程序解决争议后，另行申请登记。综上，原审判决认定基本事实清楚，程序合法，适用法律正确，依法应予维持；儋州市政府和赵景助的上诉请求和理由缺乏事实根据和法律依据，本院不予支持。依照《中华人民共和国行政诉讼法》第八十九条第一款第（一）项之规定，判决如下：
驳回上诉，维持原判。
二审案件受理费50元，由上诉人儋州市人民政府、上诉人赵景助各自负担。
本判决为终审判决。
审判长黄胜敏
审判员郑怀全
审判员麻红丽
二○一七年十二月十三日
书记员王婉附：本判决适用的相关法律依据
《中华人民共和国行政诉讼法》
第八十九条人民法院审理上诉案件，按照下列情形，分别处理：
（一）原判决、裁定认定事实清楚，适用法律、法规正确的，判决或者裁定驳回上诉，维持原判决、裁定；
（二）原判决、裁定认定事实错误或者适用法律、法规错误的，依法改判、撤销或者变更；
（三）原判决认定基本事实不清、证据不足的，发回原审人民法院重审，或者查清事实后改判；
（四）原判决遗漏当事人或者违法缺席判决等严重违反法定程序的，裁定撤销原判决，发回原审人民法院重审。
原审人民法院对发回重审的案件作出判决后，当事人提起上诉的，第二审人民法院不得再次发回重审。
人民法院审理上诉案件，需要改变原审判决的，应当同时对被诉行政行为作出判决。
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