海南省第二中级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼97行初187号
海南省第二中级人民法院
行政判决书
（2017）琼97行初187号
原告羊德锋，男，1962年1月23日出生，黎族，住海南省白沙黎族自治县。
被告白沙黎族自治县人民政府，住所地海南省白沙黎族自治县牙叉镇。
法定代表人胡翔，该县县长。
委托诉讼代理人林大进，海南法立信律师事务所律师。
委托诉讼代理人陈开拓，该县法制办主任。
第三人韦国光，男，1965年12月19日出生，黎族，住海南省白沙黎族自治县。
原告羊德锋诉被告白沙黎族自治县人民政府（以下简称白沙县政府）及第三人韦国光土地行政登记纠纷一案，本院受理后，依法组成合议庭，于2017年6月20日公开开庭审理了本案。原告羊德锋与被告白沙县政府委托诉讼代理人林大进、陈开拓及第三人韦国光到庭参加诉讼，本案现已审理终结。
被告白沙县政府于2005年9月28日给韦国光颁发白沙县农地承包权（白家）第110304032号《农村土地承包经营权证》（以下简称110304032号《经营权证》），该证项下记载共有四块承包地，其中包括本案争议地即”公路田”0.27亩水田，该水田四至范围：东至德丰田，南至国安田，西至德方田，北至鱼塘边。承包期限自1999年1月1日至2027年12月31日止。
原告羊德锋诉称，韦国光于1994年4月前种植位于白沙黎族自治县荣邦乡高峰村委会头峰村”公路田”0.27亩水田，该水田四至范围：东至德丰田，南至国安田，西至德方田，北至鱼塘边。1994年4月，韦国光将户口迁入白沙黎族自治县国营大岭农场八队，其对”公路田”没有进行实际种植，头峰村便把该水田收回于1995年7月进行重新发包。羊德锋通过抽签方式抽到了该水田种植使用至2013年被政府征收为止。2013年政府征地补偿，韦国光便拿出110304032号《经营权证》要求羊德锋交出征地款。白沙县政府给韦国光颁发的110304032号《经营权证》依法应予以撤销。理由是：承包程序违法。2005年，韦国光并非是农业户口人员，依照法律规定，没有经过村民会议三分之二以上成员或三分之二以上村民代表同意，其获得涉案水田的承包经营权违反法律规定，属程序违法。由于相关工作人员的过失没有及时变更登记，致使2005年登记时将涉案水田错误登记在韦国光的110304032号《经营权证》。发包方代表人叶何庆没有经过村民会议三分之二以上成员或三分之二以上村民代表的同意就与韦国光签订《海南省家庭承包耕地合同书》，程序违法，该合同是无效的。无效合同自始无效，韦国光通过无效的合同申请颁发证书违法。综上，羊德锋请求撤销110304032号《经营权证》。
原告羊德锋向本院提交了以下证据：1.羊德锋的《农村土地承包经营权证》，证明本案争议的”公路田”0.27亩水田没有登记在羊德锋的家庭承包土地，而是错误登记在韦国光的家庭承包土地。2.证人证言，证明”公路田”0.27亩水田是羊德锋抽签得到的。3.《证明》，证明羊德锋对”公路田”0.27亩水田享有土地承包经营权。
被告白沙县政府答辩称，白沙黎族自治县的1998年第二轮农村土地承包时延续1983年的第一轮土地承包，韦国光持有的110304032号《经营权证》是2005年换发1998年旧证，韦国光在第一轮土地承包时已经取得”公路田”0.27亩水田，根据农村土地承包顺延的法规政策，在第二轮土地承包时，韦国光也签订了涉案土地的土地承包合同，白沙县政府颁证予以确认其承包经营权。农村土地家庭承包是以户承包，户主只是承包方的代表，不是承包方。家庭成员依法享有平等的土地承包经营权利。韦国光及其配偶的户籍虽迁出头峰村，但其女儿韦白金户籍仍在头峰村，多年来未迁出。依照法律规定，韦国光不属于承包方全家迁入设区的市的规定，发包方不应收回其承包地。白沙县政府经认真审核所报材料符合要求，登记在册，没有差错。在2005年换发新证时，对第二轮土地承包合同进行全面核实并在其基础上签订新的合同，韦国光与其他农户一样签订了家庭承包合同。白沙县政府在颁证前依照规定完成颁证工作，发放证书符合法律规定，程序并无不当，羊德锋诉称的理由没有法律依据。羊德锋的诉讼请求已超过起诉期限，其在2005年换证时，羊德锋在头峰村的申请表上签字，同时也签了合同，当时应知道本案争议地”公路田”0.27亩水田不在其签订的合同上，羊德锋也应当知道有可能耕种他人的承包土地，应向相关部门查阅登记簿，从换证至起诉已经过十一年，根据法律规定，其起诉已超过起诉期限。综上，白沙县政府认为，羊德锋请求撤销韦国光的110304032号《经营权证》没有事实基础和法律依据，应驳回羊德锋的诉讼请求。
被告白沙县政府向本院提交了以下证据：证据1.会议记录，证明向韦国光换证经过全体村民代表会议讨论通过，白沙县政府颁证行为程序合法；证据2.头峰经济社农村土地承包经营权证登记申请书，证明白沙县政府颁证行为符合程序规定；证据3.海南省家庭承包耕地合同书，证明白沙县政府颁证行为认定事实清楚；证据4.白沙黎族自治县农村土地承包经营权证登记表，证明白沙县政府颁证行为认定事实清楚，程序合法；证据5.农户家庭土地经营登记表，证明白沙县政府颁证行为认定事实清楚。
第三人韦国光陈述意见称，涉案的”公路田”0.27亩水田是韦国光与头峰经济合作社签订的家庭承包合同书中的承包地，该承包地登记在韦国光的110304032号《经营权证》之中，其依法享有该地的土地承包经营权。
第三人韦国光向本院提交一份证据，即110304032号《经营权证》，证明涉案的”公路田”0.27亩水田登记在韦国光的名下，其享有土地使用权。
经庭审质证，各方当事人对本案证据的质证意见如下：
（一）关于原告提交的证据：被告对证据1的真实性、合法性没有异议，对证明内容有异议，该证据原告对争议地没有合法使用权，其于2005年知道本案争议地没有登记在其承包经营权证上；被告对证据2的真实性、合法性及关联性均有异议，没有相关的证据材料，也没有会议记录和抽签材料等予以印证；被告对证据3的真实性、合法性及关联性均有异议。第三人韦国光对证据1、2、3的真实性、合法性及关联性均有异议，证据中的村民签名是不当的，是伪造的。（二）关于被告提交的证据：原告对证据1认为是伪造的，没有开过村民会议；原告对证据2认为印章不是头峰村的印章，不能作为证据使用；原告对证据3、4、5的真实性有异议，韦国光于1994年已经将户口迁出，是非农业户口，被告违规给韦国光发证不符合法律规定，损害了原告的合法权利。
本院对上述证据认证如下：（一）关于原告提交的证据：本院认为，原告的证据1有原件核对，对其真实性予以确认，原告的证据2、3，鉴于韦国光在庭审中称涉案争议地由羊德锋自1995年后使用直至被政府征收，故对该证据的证明内容予以确认。（二）关于被告提交的证据：本院认为，被告的证据1、2、3、4、5，由于白沙县政府对羊德锋实际使用争议地予以认可，该证据的证明内容与客观实际情况不符，故对该证据的证明内容不予采信。（三）关于第三人提交的证据：本院认为，第三人的证据系本案被诉的行政行为，故不作为证据使用。
经审理查明，本案争议地”公路田”0.27亩水田，该水田的四至范围是：东至德丰田，南至国安田，西至德方田，北至鱼塘边。2005年9月28日，白沙县政府给韦国光颁发110304032号《经营权证》。羊德锋认为本案争议地一直由其进行耕作使用，被告的颁证行为没有事实根据和法律依据，侵害了其合法权益，遂提起本案行政诉讼。
另查明，第三人韦国光于1994年将户口迁出头峰村民小组，迁入白沙黎族自治县国营邦溪农场大岭分场，转为非农业家庭户口。1995年7月，白沙黎族自治县荣邦乡高峰村委会头峰村民小组将本案争议地重新发包，羊德锋通过抽签取得该地的承包经营权，其一直使用该地至2013年，没有证据证明期间有人提出过异议。庭审中，第三人韦国光对于羊德锋自1995年至2013年耕作使用本案争议地的事实予以认可。2013年，本案争议地被白沙县政府征收。
本院认为，本案的争议焦点有两个：一是羊德锋是不是本案适格的原告；二是被告白沙县政府给第三人韦国光颁发110304032号《经营权证》认定事实的主要证据是否确凿，适用法律是否正确以及程序是否合法。
关于第一个争议焦点，即羊德锋的主体资格问题。依照《中华人民共和国行政诉讼法》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。”本案中，从各方当事人在庭审中相互一致的陈述来看，在本案纠纷发生前，原告羊德锋实际耕作管理本案争议地已有十几年之久，故被告白沙县政府就本案争议地给第三人韦国光颁发110304032号《经营权证》的行政行为与原告羊德锋有法律上的利害关系，故其是适格的原告，可以依法提起本案诉讼。
关于第二个争议焦点，即被告白沙县政府给第三人韦国光颁发110304032号《经营权证》的合法性问题。《中华人民共和国农村土地承包法》第十五条明确规定：”家庭承包的承包方是本集体经济组织的农户。”从本案查明的事实看，第三人韦国光在第二轮农村集体土地家庭联产承包前已将户口迁出头峰村民小组，转为非农业家庭户口，故其已不是头峰村民小组的农户，不符合家庭承包土地承包方的法定资格。而原告羊德锋所在的村民小组和村民委员会亦出具证明材料证明村民小组已于1995年7月将本案争议地重新发包，羊德锋通过抽签取得该地的承包经营权。羊德锋也实际耕作管理本案争议地已有十几年之久，没有证据证明期间第三人韦国光提出过异议。因此，白沙县政府颁发110304032号《经营权证》确认第三人韦国光对本案争议地享有承包经营权，缺乏事实根据。被告白沙县政府辩称其颁发110304032号《经营权证》是对第一轮农村集体土地家庭联产承包经营权的确认，并且第三人韦国光也于2005年与村集体签订了家庭承包合同。根据《中华人民共和国农村土地承包经营权证管理办法》第十二条”乡（镇）农村经营管理部门和县级以上地方人民政府农业行政主管部门在办理农村土地承包经营权证过程中应当履行下列职责：（一）查验申请人提交的有关材料；（二）就有关登记事项询问申请人；（三）如实、及时地登记有关事项；（四）需要实地查看的，应进行查验。在实地查验过程中，申请人有义务给予协助”的规定，被告在办理农村土地承包经营权证过程中对申请人提交的材料具有审查核实的义务。从被告提交的《海南省家庭承包耕地合同书》所签订的时间来看，显然是为了2005年全省统一颁发农村土地承包经营权证而制作的合同书，并非是在进行第二轮农村集体土地发包时所签订，故此时被告在颁证前负有更加严格的审查核实义务。而事实上第三人在第二轮农村集体土地承包时就已经丧失家庭承包土地承包方的法定资格，且原告羊德锋所在的村民小组和村民委员会亦出具证明材料证明上述合同书的制作是因其工作过失导致，故被告在办理农村土地承包经营权证过程中对申请人提交的材料并没有进行实地查看核实。综上，被告白沙县政府给第三人韦国光颁发110304032号《经营权证》确认其对本案争议地享有承包经营权，认定事实不清，且未尽到审查核实义务，损害了原告羊德锋对本案争议地享有的合法权益，故对于110304032号《经营权证》中关于本案争议地的登记内容应予撤销。依照《中华人民共和国行政诉讼法》第七十条第（一）项的规定，判决如下：
撤销被告白沙黎族自治县人民政府于2005年9月28日给韦国光颁发白沙县农地承包权（白家）第110304032号《农村土地承包经营权证》中”公路田”地块的登记内容。
案件受理费人民币50元，由被告白沙黎族自治县人民政府负担。
如不服本判决，可在判决书送达之日起十五日内，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。
审判长孔凡勇
审判员张德雄
审判员郝良存
二○一七年七月六日
法官助理刘欢
书记员赵瑛瑛
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走私、贩卖、运输、制造毒品，无论数量多少，都应当追究刑事责任，予以刑事处罚。
走私、贩卖、运输、制造毒品，有下列情形之一的，处十五年有期徒刑、无期徒刑或者死刑，并处没收财产：
（一）走私、贩卖、运输、制造鸦片一千克以上、海洛因或者甲基苯丙胺五十克以上或者其他毒品数量大的；
（二）走私、贩卖、运输、制造毒品集团的首要分子；
（三）武装掩护走私、贩卖、运输、制造毒品的；
（四）以暴力抗拒检查、拘留、逮捕，情节严重的；
（五）参与有组织的国际贩毒活动的。
走私、贩卖、运输、制造鸦片二百克以上不满一千克、海洛因或者甲基苯丙胺十克以上不满五十克或者其他毒品数量较大的，处七年以上有期徒刑，并处罚金。
走私、贩卖、运输、制造鸦片不满二百克、海洛因或者甲基苯丙胺不满十克或者其他少量毒品的，处三年以下有期徒刑、拘役或者管制，并处罚金；情节严重的，处三年以上七年以下有期徒刑，并处罚金。
单位犯第二款、第三款、第四款罪的，对单位判处罚金，并对其直接负责的主管人员和其他直接责任人员，依照各该款的规定处罚。
利用、教唆未成年人走私、贩卖、运输、制造毒品，或者向未成年人出售毒品的，从重处罚。
对多次走私、贩卖、运输、制造毒品，未经处理的，毒品数量累计计算。
\'},{法条名称:\'第五十二条\',法条内容:\' 第五十二条
判处罚金，应当根据犯罪情节决定罚金数额。
\'},{法条名称:\'第五十三条\',法条内容:\' 第五十三条
罚金在判决指定的期限内一次或者分期缴纳。期满不缴纳的，强制缴纳。对于不能全部缴纳罚金的，人民法院在任何时候发现被执行人有可以执行的财产，应当随时追缴。如果由于遭遇不能抗拒的灾祸缴纳确实有困难的，可以酌情减少或者免除。
\'},{法条名称:\'第六十四条\',法条内容:\'
第六十四条
犯罪分子违法所得的一切财物，应当予以追缴或者责令退赔；对被害人的合法财产，应当及时返还；违禁品和供犯罪所用的本人财物，应当予以没收。没收的财物和罚金，一律上缴国库，不得挪用和自行处理。
\'},{法条名称:\'第四十七条\',法条内容:\'
第四十七条 有期徒刑的刑期，从判决执行之日起计算；判决执行以前先行羁押的，羁押一日折抵刑期一日。
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