海南省高级人民法院
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（2017）琼行终90号
海南省高级人民法院
行政判决书
（2017）琼行终90号
上诉人（原审原告）陈春蓉，女，1953年1月9日出生，汉族，现住琼海市。
委托代理人陈杰川，琼海市恒信法律事务所法律工作者。
被上诉人（原审被告）琼海市人民政府,住所地琼海市嘉积镇兴海北路1号。
法定代表人符平，市长。
委托代理人吴春，琼海市国土资源局地籍股科员。
原审第三人林仲，男，1966年10月4日出生，汉族，住琼海市。
委托代理人吴玉坤，琼海市中心法律事务所法律工作者。
原审第三人余明春，男，1955年5月1日出生，汉族，现住琼海市。
上诉人陈春蓉因其诉被上诉人琼海市人民政府（以下简称琼海市政府）及原审第三人林仲、余明春土地行政登记一案，不服海南省第一中级人民法院（2016）琼96行初200号行政判决，向本院提起上诉。本院依法组成合议庭，公开开庭审理了本案。上诉人陈春蓉及其委托代理人陈杰川、被上诉人琼海市政府的委托代理人吴春、原审第三林仲及其委托代理人吴玉坤到庭参加诉讼。原审第三人余明春经本院合法传唤，无正当事由拒不到庭，不影响本案审理，本案现已审理终结。
本案被诉行政行为：2008年11月21日，琼海市政府向林仲颁发海国用（2008）第1146号《国有土地使用证》(以下简称1146号证)，该证记载，坐落：琼海市嘉积镇朝标西路；地号：[1（2）-980-10]；权利人：林仲；面积：120㎡；用途：城镇住宅用地。
原审查明，涉案土地位于琼海市××镇，面积为120㎡。2001年3月27日，琼海市政府颁发海国用（2001）第307号《国有土地使用证》（以下简称307号证），将此地的国有土地使用权确定给余明春，用途为商住。2008年9月20日，余明春、陈春蓉与林仲订立《国有土地使用权转让合同》，将涉案土地使用权转让给林仲。林仲已向余明春支付完毕转让价款人民币190680元并缴清此地交易税款人民币45293元等款项。2008年10月8日，余明春、陈春蓉与林仲共同向琼海市政府提交《国有土地使用权（转受让）变更登记申请书》《国有土地使用权转让合同》、307号证和余明春、陈春蓉、林仲的《居民身份证》以及余明春与陈春蓉的《结婚证》等材料，申请办理国有土地使用权变更登记。琼海市政府经地籍调查、审批登记等程序于2008年11月21日向林仲颁发1146号证，将上述120㎡的国有土地使用权变更登记至林仲名下，用途为城镇住宅用地。余明春也将此地交付给林仲。林仲于2010年5月、2015年9月取得涉案土地的《建设工程规划临时许可证》，取得用地建设报建手续并建筑8层楼房。2016年2月3日，陈春蓉对林仲在涉案土地上建筑楼房提出异议。2016年3月14日，陈春蓉向琼海市政府所属的国土管理部门发出信件，提出余明春未经其同意私自转让涉案土地使用权问题，要求予以解决。2016年4月15日，琼海市国土资源局作出海国土资回报[2016]17号《关于陈春蓉来访反映问题的回复》，称此地国有土地使用权已颁发新的国有土地使用证变更登记在林仲名下，建议当事人协商解决或者通过司法途径解决。陈春蓉遂提起本案诉讼，请求判决撤销琼海市政府给林仲颁发的1146号证。
原审另查明，陈春蓉与余明春于1988年5月9日在原琼海县（现琼海市）嘉积镇人民政府登记结婚，2014年7月8日经琼海市人民法院调解协议离婚，二人离婚财产分配协议中没有涉案土地使用权。
原审认为，琼海市政府于2001年3月27日颁发307号证，将本案争议的120㎡国有土地使用权登记在余明春名下，该地系陈春蓉夫妻存续期间共同所有的财产。2008年10月8日，余明春、陈春蓉与林仲共同向琼海市政府提交《国有土地使用权（转受让）变更登记申请书》《国有土地使用权转让合同》、307号证和余明春、陈春蓉、林仲的《居民身份证》及余明春与陈春蓉的《结婚证》等材料，申请办理国有土地使用权变更登记。琼海市政府经地籍调查、审批登记等程序于2008年11月21日向林仲颁发1146号证，将上述120㎡的国有土地使用权变更登记至林仲名下。林仲已向余明春支付完毕该土地权属转让价款并向税务部门缴清交易税款人民币45293元等款项。琼海市政府作出的土地行政登记行为，符合1995年12月28日原国家土地管理局发布的《土地登记规则》第三十七条和国土资源部制定并于2008年2月1日实施的《土地登记办法》第九条、第四十条有关办理土地使用权转让变更登记的规定，证据确凿，适用法律、法规正确，符合法定程序。虽然本案争议土地原为陈春蓉与余明春夫妻存续期间的共有财产，陈春蓉在诉讼中也对上述《国有土地使用权转让合同》及《国有土地使用权（转受让）变更登记申请书》中”陈春蓉”的签名及所捺手印的真实性提出异议并向原审法院申请司法鉴定，但鉴于余明春、林仲没有提出异议，加之余明春已收取了全部土地转让价款并将此地交付给了林仲使用，林仲通过合法报建手续并已建筑8层楼房，陈春蓉申请鉴定没有必要，不予准许。同时陈春蓉并没有其他相反证据证实林仲取得涉案土地使用权不属于善意取得，即便有关陈春蓉的签名和捺手印不实，也不足以证实琼海市政府作出上述土地登记行政行为违法，侵害陈春蓉的合法权益。因此，陈春蓉诉请理由不能成立，对其诉讼请求不予支持。依照《中华人民共和国行政诉讼法》第六十九条之规定，判决驳回陈春蓉的诉讼请求。案件受理费人民币50元，由陈春蓉负担。
上诉人陈春蓉上诉称，琼海市政府据以颁发涉案土地证的《国有土地使用权转让合同》《国有土地使用权（转受让）变更登记申请书》中”陈春蓉”的签名系盗用、冒用，琼海市政府据此颁发涉案土地证认定事实不清，原审认定事实错误。陈春蓉申请笔迹鉴定是法律赋予的诉讼程序权利和司法救济权利,原审不予准许陈春蓉鉴定申请剥夺了其诉讼权利，程序违法。综上，原审认定事实错误、程序违法，请二审法院依法改判，支持其诉讼请求。
被上诉人琼海市政府答辩称，一、琼海市政府颁发1146号证的行政行为认定事实清楚、适用法律正确、程序合法。1146号证由307号证变更登记而来，琼海市政府根据林仲提供的土地登记申请书、307号证原件、完税证明书、合同双方当事人共同签字的《国有土地使用权转让合同》和《国有土地使用权（转受让）变更登记申请书》等材料，依据《土地登记办法》的规定，逐级审批核准后进行变更登记，符合法律规定。二、陈春蓉主张其签名和手印系伪造，证据不足。林仲所提供的上述材料可以认定土地使用权转让事实，陈春蓉的签名是否真实，土地管理部门无法甄别。307号证的权利人是余明春，转让行为经其亲自签名确认，事实清楚、证据确凿。林仲取得涉案土地使用权属于善意取得，其合法权益应当受到法律保护，陈春蓉的签名真伪不影响转让变更登记的结果。若陈春蓉的签名及手印不是本人所为，其应向余明春追偿。综上，原审认定事实清楚、适用法律正确，请求二审法院驳回上诉，维持原判。
原审第三人林仲陈述称，2008年9月20日，林仲与余明春、陈春蓉夫妇订立《国有土地使用权转让合同》，约定转让涉案土地使用权，林仲支付转让款并缴纳有关税费后，办理了1146号证。随后林仲出资搬迁了水管、鸡舍和土地庙等地上附着物，依法报建后在涉案土地上建房，现已建成8层楼房，花费300余万元。2008年至2016年期间陈春蓉从未提出异议，2009年至2013年期间，陈春蓉在其与余明春的四次离婚诉讼中被问及夫妻共有财产时，也从未提及涉案土地，说明陈春蓉明显知晓涉案土地使用权的转让行为。综上，出让土地使用权是各方的真实意思表示，林仲依法履行合同义务后，取得土地使用权是善意取得。琼海市政府的颁证行为事实清楚、程序合法，陈春蓉的诉讼请求没有事实根据和法律依据，请求二审法院驳回上诉，维持原判。
原审第三人余明春未提供陈述意见。
二审经审理查明，涉案土地上原有一座土地庙及鸡舍（案外人所有）等附着物，后土地庙等地上附着物被迁出涉案土地。陈春蓉离婚前和离婚后的住所距离涉案土地步行约十五分钟。本院查明的其他事实与原审认定事实一致，予以确认。
本院认为，本案争议焦点：琼海市政府向林仲颁发1146号证的行政行为认定事实是否清楚、程序是否合法、适用法律是否正确。本案中，陈春蓉仅指出《国有土地使用权转让合同》及《国有土地使用权（转受让）变更登记申请书》中”陈春蓉”的签字和指印系他人盗用、冒用。经法庭询问，陈春蓉亦称其得知涉案土地被转让至林仲后向余明春询问相关事宜，余明春承认其转让了涉案土地，但自2008年11月21日涉案土地被转让并登记至林仲名下至2016年陈春蓉从未向林仲就涉案土地提出过异议。2014年7月8日陈春蓉与余明春经琼海市人民法院调解协议离婚时，有关二人夫妻共同财产的陈述以及分配协议中亦未提及涉案土地。陈春蓉解释称涉案土地没有办理《国土证》，所以没有分配涉案土地，而涉案土地于2001年3月27日由琼海市政府向余明春颁发307号证，陈春蓉的解释与事实不符。涉案土地上原有附着物土地庙、鸡舍等物已被清理，陈春蓉解释不知何人何时清理，经过现场勘查及询问，陈春蓉离婚前以及离婚后的住所距离涉案土地步行约15分钟，对于涉案土地上附着物的清理无证据显示陈春蓉提出过异议。由于陈春蓉在2008年至2016年长达近八年的时间内均未向林仲就涉案土地提出过异议，因此，原审鉴于余明春收取了全部土地转让价款并将此地交付林仲使用，林仲经合法报建已建筑8层楼房的实际情况，认为陈春蓉的笔迹鉴定没有必要，不予准许并无不妥。
本案中，余明春、林仲共同向琼海市政府提交《国有土地使用权（转受让）变更登记申请书》《国有土地使用权转让合同》、307号证和余明春、陈春蓉、林仲的《居民身份证》及余明春与陈春蓉的《结婚证》等材料，申请办理国有土地使用权变更登记。琼海市政府履行地籍调查、审批登记等程序后于2008年11月21日给林仲颁发1146号证，将涉案土地的国有土地使用权变更登记至林仲名下。林仲已向余明春支付完毕该土地权属转让价款并向税务部门缴清交易税款等款项。因此，原审认为琼海市政府作出的土地行政登记行为，符合有关办理土地使用权转让变更登记的规定，适用法律、法规正确，符合法定程序并无不当。
综上所述，琼海市政府向林仲颁发1146号证的行政行为认定事实清楚、程序合法，原审认定事实清楚，适用法律、法规正确，陈春蓉的上诉请求和理由不能成立，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元由上诉人陈春蓉负担。
本判决为终审判决。
审判长陈焱
审判员聂海波
审判员朱望锋
二○一七年三月三十日
书记员李励云
附相关法律条文：
《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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