海南省海口市中级人民法院
p t ; ” > 行 政 裁 定 书
（2016）琼01行初303号
原告海口市美兰区演丰镇美兰村委会谭康仔村民小组，住所地海口市美兰区演丰镇美兰村委会谭康仔村。
法定代表人吴挺雄，组长。
原告海口市美兰区演丰镇美兰村委会村内仔村民小组，住所地海口市美兰区演丰镇美兰村委会村内仔村。
法定代表人吴明壮，组长。
原告海口市美兰区演丰镇美兰村委会美兰下村民小组，住所地海口市美兰区演丰镇美兰村委会美兰下村。
法定代表人卢章源，组长。
以上共同委托代理人唐晓烨，海南天皓律师事务所律师。
以上共同委托代理人喻鹏飞，海南天皓律师事务所律师。
被告海口市人民政府，住所地海口市长滨二路市政府第二办公区。
法定代表人倪强，市长。
委托代理人吴孔军，海南瑞来律师事务所律师。
委托代理人李乐，海口市人民政府法律顾问室法律顾问。
第三人海南承海实业投资有限公司，住所地海口市美兰区演丰镇美兰墟美兰花园F栋202房。
法定代表人郑晓科，总经理。
委托代理人吴蓉，海南承海实业投资有限公司财务总监。
原告海口市美兰区演丰镇美兰村委会谭康仔村民小组(以下简称谭康仔村民小组）、海口市美兰区演丰镇美兰村委会村内仔村民小组（以下简称村内仔村民小组）、原告海口市美兰区演丰镇美兰村委会美兰下村民小组（以下简称美兰下村民小组）不服被告海口市人民政府（以下简称市政府）向第三人海南承海实业投资有限公司（以下简称承海公司）颁发国有土地使用证一案，于2016年8月29日向本院提起诉讼。本院于同日立案后，依法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2016年11月14日公开开庭审理了本案。原告谭康仔村民小组的法定代表人吴挺雄、村内仔村民小组的法定代表人吴明壮、美兰下村民小组的共同委托代理人唐晓烨、被告市政府的委托代理人吴孔军、李乐到庭参加诉讼，第三人承海公司经本院合法传唤，无正当理由拒不到庭。本案现已审理终结。
本案被诉行为系被告市政府向第三人承海公司颁发的海口市国用（2010）第004851号《国有土地使用证》（以下简称004851号证）。
原告诉称，位于海口市××区.92平方米土地，系三原告所有的土地。1992年，三原告将土地承包给第三人使用，并收取相应的土地承包款。2007年，三原告发现市政府向第三人颁发琼山籍国用(1999)字第09-0003号国有土地使用证（以下简称09-0003号证），三原告向海南省人民政府申请行政复议，要求撤销该土地证。复议期间，海南省人民政府以案件存在重大事实问题需要进一步调查为由，中止复议程序，并于2016年恢复审理。在此期间，被告于2010年注销了09-0003号证，并重新向第三人颁发004851号证。2016年4月，海南省人民政府以09-0003号证已被注销为由，终止行政复议程序。
原告认为，被告超出自身审批权限，采取化整为零的方式进行土地征收，在涉案土地征用过程中，完全违反土地管理法的有关规定，未办理农用地转用审批手续，未依法公告，未与原告签订征用土地补偿协议书，也未作出征地决定书，征地程序存在明显违法。因此，上述土地依法仍应属三原告所有集体土地，被告征收上述土地的行为违法。被告在明知存在争议并复议的情况下，且土地仍是空地的情况下，将09-0003号证注销重新给第三人办理004851号证行为,亦存在明显错误。请求：1、撤销被告向第三人颁发的004851号证；2、诉讼费用由被告负担。
被告市政府辩称：一、原告不具有诉讼主体资格，应依法驳回其起诉。《中华人民共和国物权法》第九条规定，不动产物权的设立、变更、转让和消灭，经依法登记，发生效力。第十七条规定，不动产权属证书是权利人享有该不动产物权的证明。涉案土地于1999年登记在琼山穗琼联营民政开发公司名下，证号为09-0003号证。本案涉及的土地证系由09-0003号证变更而来。根据涉案土地多次变更使用人的事实看，涉案土地依法属于国有土地，而原告诉称涉案土地属于其所有的集体土地，涉案土地既没有依法进行登记，也没有取得相应的不动产权属证书或其他司法确权文书，因此，原告与被告颁发国有土地使用证的行为没有法律上利害关系，不具有原告诉讼主体资格，应依法驳回其起诉。二、被告颁发004851号证的行政行为认定事实清楚，程序合法，符合法律法规规定。本案所涉土地位于海口市演丰镇美兰墟，面积66663.92平方米，土地用途为工业用地，四至为东至海南中惠房地产开发有限公司，南至海南中惠房地产开发有限公司，西至路，北至海南中惠房地产开发有限公司。1992年琼山穗琼联营民政开发公司申请选址在美兰墟进行专项成片开发兴建国际药业城，项目立项以及项目用地申请得到政府各相关部门的批准同意。涉案土地属海南国际药业城建设用地中的一部分，原土地使用权人为琼山穗琼联营民政开发公司，土地证号为09-00**号证，面积为66666.59平方米，土地用途为工业用地。2010年4月，因涉及重点项目用地，本案第三人申请办理土地变更手续，由原土地使用权人琼山穗琼联营民政开发公司变更为本案第三人名下。由于登记在琼山穗琼联营民政开发公司名下的09-0003号证存在查封、抵押情况，第三人提交了土地证、抵押合同、借款合同、债权转让协议、法院司法文书等相关资料。被告的土地管理部门受理申请后，对相关资料进行审核，依法进行地籍调查、权属审核，在确认土地来源合法、四至清楚、面积准确的情况下，依据《土地登记办法》的规定，依法给第三人颁发了004851号证。据此，被告颁发004851号证的具体行政行为认定事实清楚，程序合法，符合法律法规规定，依法应予以维持。
第三人承海公司未提交书面陈述意见。
经审理查明，本案所诉004851号证项下土地位于海口市演丰镇美兰墟，土地使用者为第三人承海公司，面积66663.92平方米，用地来源为转让，土地用途为工业用地，四至为东至海南中惠房地产开发有限公司，南至海南中惠房地产开发有限公司，西至路，北至海南中惠房地产开发有限公司。涉案土地属海南国际药业城建设用地中的一部分，原土地使用权人为琼山穗琼联营民政开发公司，土地证号为09-00**号证，面积为66666.59平方米，土地用途为工业用地。因琼山穗琼联营民政开发公司更名为承海公司，2010年4月，承海公司申请办理土地变更手续，经被告下属土地管理部门受理，并进行地籍调查、权属审核等，注销了09-0003号证，向承海公司颁发涉案004851号证。
本院认为，原告所诉被告市政府向第三人承海公司颁发涉案004851号证，系从09-0003号证变更取得，而09-0003号证的土地用途为工业用地，也就是说，涉案004851号证项下土地在变更之前即属工业用地，而非原告所称属原告集体用地。因此，被告向第三人颁发涉案004851号证的行政行为，与原告并不存在利害关系。原告起诉要求撤销被告向第三人颁发的004851号证，不符合法定起诉条件。被告辩解意见，于法有据，本院予以采纳。依照《中华人民共和国行政诉讼法》第四十九条第（一）项、《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：
驳回原告海口市美兰区演丰镇美兰村委会谭康仔村民小组、海口市美兰区演丰镇美兰村委会村内仔村民小组、海口市美兰区演丰镇美兰村委会美兰下村民小组的起诉。
本案不收取案件受理费。原告海口市美兰区演丰镇美兰村委会谭康仔村民小组、海口市美兰区演丰镇美兰村委会村内仔村民小组、海口市美兰区演丰镇美兰村委会美兰下村民小组预交的案件受理费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。
审判长陈文红
审判员何芳
审判员潘娜
书记员麦海燕
附相关法律法规
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