海南省第二中级人民法院
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（2017）琼97行终52号
海南省第二中级人民法院
行政裁定书
（2017）琼97行终52号
上诉人（原审第三人）司徒璐薇，女，1990年11月20日出生，汉族，现在海南省东方市八所镇八所港中区**栋***号。
上诉人（原审第三人）吴泽昆，男，1996年8月10日出生，汉族，现在海南省东方市八所镇永安社区居委会东府大街*号**幢***号。
上列二上诉人的共同委托诉讼代理人文友亮，东方市148法律事务所法律工作者。
被上诉人（原审原告）王明海，男，1977年5月3日出生，汉族，现在海南省东方市八所镇皇宁村十八队。
委托诉讼代理人黄勇，海南天皓律师事务所律师。
原审被告东方市国土资源局，住所地海南省东方市八所镇二环南路。
法定代表人林振松，该局局长。
委托诉讼代理人杜林真，东方市国土资源局工作人员。
原审第三人海南东方市汇源实业有限公司。
法定代表人王博明，该公司总经理。
上诉人司徒璐薇、吴泽昆因与被上诉人王明海、原审被告东方市国土资源局（以下简称东方市国土局）、原审第三人海南东方市汇源实业有限公司（以下简称东方汇源公司）国有土地坐标变更行政行为纠纷一案，不服东方市人民法院（2016）琼9007行初30号行政判决，向本院提起上诉。本院受理该案后依法组成合议庭，并于2017年10月18日公开开庭审理了本案。上诉人司徒璐薇、吴泽昆的共同委托诉讼代理人文友亮，被上诉人王明海的委托诉讼代理人黄勇，原审被告东方市国土局的委托诉讼代理人杜林真到庭参加诉讼。原审第三人东方汇源公司经本院合法传唤，未到庭参加诉讼，本院依法缺席审理。本案现已审理终结。
被诉行政行为是：2014年1月21日，东方市国土局作出《国有土地使用权坐标变更公告》，认为东方汇源公司位于东方大道北侧，面积6666平方米，四至范围为东至中国保利南方公司、南至东方大道、西至海南华昶实业有限公司、北至公路，其范围的土地原坐标为：J1(X110745.0、Y576493.0），J2（X110557.0、Y576439.0），J3（X110566.02、Y576406.92），J4（X110696.28、Y576444.60），J5（X110754.02、Y：576460.92）。经实际地籍调查，该宗地实际坐标应为：J1（X114098.476、Y22429.722），J2（X113908.476、Y：22367.274），J3（X113917.822、Y22335.281），J4（X114107.823、Y22397.730），现公告更正。凡对该宗地权属有异议的，请将书面材料及有效证明材料自公告之日起15日内送东方市国土局地籍岗，逾期我局将按规定为东方汇源公司办理国有土地使用权登记手续。
原审法院查明：涉案土地系东方汇源公司名下东方国用（八所）4462号《国有土地使用权证》（以下简称4462号土地证）项下土地，总面积6666平方米。2000年4月20日，司徒璐薇、吴泽昆与东方汇源公司签订《土地使用权转让合同》，以出让方式取得4462号证项下土地的一部分，并办理东方国用（八所）5657号《国有土地使用权证》（以下简称5657号土地证）、东方国用（八所）5663号《国有土地使用权证》（以下简称5663号土地证），该两宗地面积均为361.7平方米。2004年12月16日，王明海向八所镇皇宁村购买了一块宅基地，面积为280平方米，并在该地上建房居住。2011年，司徒璐薇、吴泽昆与王明海发生宅基地使用权纠纷，起诉至原审法院。原审法院于2011年6月13日函请东方市国土局实地勘查测绘司徒璐薇、吴泽昆的宅基地（即5657号土地证、5663号土地证项下土地）具体坐标及王明海所建房屋是否在司徒璐薇、吴泽昆宅基地的四至范围内。东方市国土局于2015年3月30日复函原审法院，王明海所建的房屋均在司徒璐薇、吴泽昆的宅基地四至范围内。原审法院据此作出（2011）东民一初字第186号民事判决，责令王明海停止对司徒璐薇、吴泽昆宅基地的侵害。该案经海南省第二中级人民法院二审维持原判。
2014年1月21日，东方市国土局作出《国有土地使用权坐标变更公告》，将东方汇源公司名下的4462号土地证项下土地坐标由原来的坐标J1(X110745.0、Y576493.0），J2（X110557.0、Y576439.0），J3（X110566.02、Y576406.92），J4（X110696.28、Y576444.60），J5（X110754.02、Y：576460.92），变更为：J1（X114098.476、Y22429.722），J2（X113908.476、Y：22367.274），J3（X113917.822、Y22335.281），J4（X114107.823、Y22397.730），并在2014年1月23日的海南日报上进行了公告。但至本案起诉前，4462号土地证未办理坐标变更手续，换发新的证书。
原审法院认为，根据《司法技术鉴定报告》得出的鉴定结论可知，4462号土地证项下土地变更前的坐标与东方市国土局变更后的坐标，经勘验测量后，不是同一地块，并非东方市国土局所辩解的变更前坐标和变更后坐标是同一地块上的不同坐标系统，东方市国土局也未提供证据证明对4462号土地证项下土地坐标变更的合法理由，故东方市国土局对4462号土地证项下土地坐标变更的行政行为没有事实根据和法律依据，依法应予以撤销。关于东方市国土局与司徒璐薇、吴泽昆提出的”原告与被告变更4462号土地证项下土地坐标行为没有利害关系，不具备本案原告主体资格”的意见，原审法院认为司徒璐薇、吴泽昆与王明海宅基地使用权纠纷案件中，东方市国土局对司徒璐薇名下的5657号土地证项下土地和吴泽昆名下的5663号土地证项下土地坐标勘测测绘，确认王明海所建房屋在该两证宅基地范围内，而司徒璐薇、吴泽昆取得的5657号土地证、5663号土地证项下土地属于4462号土地证项下土地的一部分，故4462号土地证项下土地坐标变更与王明海具有法律上的利害关系，王明海具备起诉的主体资格。综上所述，依照《中华人民共和国行政诉讼法》第七十条第（一）项的规定，判决撤销东方市国土局于2014年1月21日作出的《国有土地使用权坐标变更公告》。
上诉人司徒璐薇、吴泽昆不服原审判决，上诉称，一、王明海与被诉行政行为没有法律上的利害关系，不具备原告的诉讼主体资格。王明海主张东方市国土局变更涉案《国有土地使用证》坐标的行政行为违法，根据生效裁判文书查明的事实，王明海所主张的合法权益（即实际建房居住、使用争议地）开始于2007年，没有证据证明在1997年东方市人民政府给东方汇源公司颁发的4462号土地证时或向司徒璐薇、吴泽昆颁发土地证时其对该证项下土地享有合法权益。故，王明海在本案中没有任何实体权利，其不具有提起本案的诉讼主体资格。二、被诉行政行为不具有可诉性，应裁定驳回王明海的起诉。根据法律规定，对公民、法人或者其他组织权利义务不产生实际影响的行为，不属于人民法院行政诉讼的受案范围。本案中，东方市国土局作出的土地坐标变更行为是根据东方市人民法院的委托对4462号土地证项下土地进行测绘后将测绘结果复函给东方市人民法院，而不是针对王明海作出的，所作内容并非侵犯到王明海的权利。该复函属于内部行政行为，是对一种事实的确认、认可或证明，并不会引起行政法律关系的变动，未对王明海的权利义务产生实际影响，应驳回王明海的起诉。综上，请求二审法院撤销一审判决，裁定驳回王明海的起诉。
被上诉人王明海未提交书面答辩意见，其庭审口头答辩称,第一、东方市国土局变更国有土地坐标的行为侵害了王明海的权利，变更土地坐标后的土地位置转移到王明海的用地范围内，因此王明海是变更土地利害关系人，王明海具有原告主体资格；第二、本案被诉行为具有可诉性，根据相关法律规定，行政机关行为侵害公民合法权益，就有权利提起行政诉讼，东方市国土局变更土地坐标的行为，侵害了王明海的合法权益，该行政行为具有可诉性。综上，原审判决正确，应予维持。
东方市国土局未提交书面答辩意见，其庭审口头述称，第一，颁发给东方汇源公司国土证的行政行为是东方市人民政府作出的，应当以东方市人民政府为被告，由海南省第二中级人民法院管辖；第二，从王明海提供的购买宅基地协议书来看，不能证明王明海为本案涉案土地的相关权益人，王明海也没有证据证明颁发给汇源公司的4462号证的发证行为损害了其的合法权益。因此，王明海原告主体资格不符合《中华人民共和国行政诉讼法》第二十五条的规定，应当依法驳回其的起诉；第三，本案被诉的土地变更行为是2014年1月21日作出并在海南日报上公告，但王明海在该行政行为作出3年后才提起本案诉讼，根据行政诉讼法的规定，王明海的起诉已经超过法定6个月的起诉期限，应当依法驳回其的起诉。综上，恳请二审法院依法判决。
各方当事人在一审提交的证据材料已随案移送本院，并在二审庭审中再次进行了质证。
本院经审理查明的事实与一审判决认定的事实一致，本院予以确认。
经本院组织各方当事人现场勘查，涉案宗地上现有王明海建造的房屋一栋，由王明海居住使用。
本院认为，行政诉讼审查的对象应是对公民、法人或者其他组织的权益产生确定效力的成熟性行政行为，行政机关在行使行政管理行为过程中作出的程序性和处于中间的阶段性行政行为即中间行政行为，对权利相对人没有产生独立和终局的行政法律后果，不具有可诉性，不属于人民法院的受案范围。本案中，东方市国土局作出的土地坐标变更公告行为，其目的是为了给东方汇源公司名下的4462号土地证进行变更登记颁证，属于变更登记颁证过程的中间程序性行为，不具有终局性的法律后果，对王明海的权益未产生实际影响，因此，该行政行为不具有可诉性，不属于人民法院受案范围。王明海如不服该行政行为，可以在颁证行为作出后对该颁证行为提起诉讼。原审法院对不符合起诉条件的起诉予以受理并作出实体判决，程序违法，应予撤销。对王明海的起诉，依法应予驳回。依照《中华人民共和国行政诉讼法》第八十九第一款第（二）项、《最高人民法院关于执行<中华人民共和国行政诉讼法>若干问题的解释》第七十九条第(一)项的规定，裁定如下：
一、撤销东方市人民法院（2016）琼9007行初30号行政判决；
二、驳回王明海的起诉。
预收的一、二审案件受理费共100元，退回给王明海。
本裁定为终审裁定。
审判长周文娟
审判员符波
审判员张成信
二〇一七年十月二十日
法官助理林朝霞
书记员赵瑛瑛
附：本案适用的相关法律条文
《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。
《最高人民法院关于执行〈中华人民共和国行政诉讼法〉
若干问题的解释》
第七十九条人民法院审理二审案件和再审案件，对原审法院受理、不予受理或者驳回起诉错误的，应当分别情况作如下处理：
（一）第一审人民法院作出实体判决后，第二审人民法院认为不应当受理的，在撤销第一审人民法院判决的同时，可以发回重审，也可以迳行驳回起诉；
（二）第二审人民法院维持第一审人民法院不予受理裁定错误的，再审法院应当撤销第一审、第二审人民法院裁定，指令第一审人民法院受理；
（三）第二审人民法院维持第一审人民法院驳回起诉裁定错误的，再审法院应当撤销第一审、第二审人民法院裁定，指令第一审人民法院审理。
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