海南省第二中级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼97行初216号
海南省第二中级人民法院
行政裁定书
（2017）琼97行初216号
原告邓乾家，男，汉族，住儋州市。
原告谢井贷，女，汉族，住儋州市。
以上二原告共同委托诉讼代理人王本生，海南林源律师事务所律师。
被告儋州市人民政府，住所地儋州市那大镇中兴大道市直机关办公大楼。
法定代表人朱洪武，市长。
委托诉讼代理人王潇潇，儋州市政府法制办工作人员。
委托诉讼代理人吴子韶，儋州市政府农业委员会工作人员。
第三人叶业精，男，汉族，住儋州市。
委托诉讼代理人叶畅，男，汉族，住儋州市。
第三人儋州市排浦镇春花村委会老师村民小组。
负责人李金雄，组长。
第三人儋州市排浦镇春花村委会春花村民小组。
负责人李明贤，组长。
原告邓乾家、谢井贷诉被告儋州市人民政府（简称儋州市政府）及第三人叶业精、儋州市排浦镇春花村民委员会春花村民小组（简称春花村小组）、儋州市排浦镇春花村委会老师村民小组（简称老师村小组）土地行政登记纠纷一案，于2017年6月22日向本院提起行政诉讼。本院于同年7月14日立案后，依法向被告儋州市政府送达了起诉状副本及应诉通知书。因春花村小组与本案被诉行政行为有利害关系，本院依法通知其为第三人参加诉讼。本院依法组成合议庭，于2017年10月27日公开开庭审理了本案。原告邓乾家、谢井贷以及其共同委托诉讼代理人王本生，被告儋州市政府的委托诉讼代理人王潇潇，第三人叶业精及其委托诉讼代理人叶畅，第三人老师村小组的负责人李金雄，第三人春花村小组的负责人李明贤到庭参加诉讼。本案现已审理终结。
被诉行政行为：被告儋州市政府于2005年9月30日颁发儋州市（县）农地承包权（排浦）第0110347号《农村土地承包经营权证》（简称第0110347号《农地承包证》），该证上记载：发包方为老师村小组，承包方代表为叶业精，承包方式是家庭承包，承包期限至2027年12月31日，承包地总面积53亩，承包地块总数为16块，其中”狂马岛”地块面积为8亩，四至为东至秀华地、南至旱田、西至旱田、北至王高地；”马腾地”地块面积为7亩，四至为东至小江林地、南至旱田、西至橡胶林、北至旱田。
原告邓乾家、谢井贷诉称：1979年，原告邓乾家的父亲作为承包方代表，以家庭联产承包的方式承包了”桶井地”50亩，根据当时土地承包政策缴纳租金，该事实有《农业生产责任制合同证》证明，期间该地一直以种植短期农作物为主，第三人叶业精对此未提出异议。1991年7月1日，农业部门继续对上述土地颁发《儋县农经社承包责任制合同书》，确认原告家庭成员承包”桶井地”50亩不变，该土地主要用于种植农作物甘蔗及芒果树，原告家庭成员一直耕作该土地未丢荒，第三人叶业精也未提出异议。2005年，被告向原告颁发儋州市（县）农地承包权（排浦）第0110413号《农村土地承包经营权证》（简称第0110413号《农地承包证》），继续确认原告家庭成员共同承包”桶井地”50亩不变。随后，原告把”桶井地”50亩转包给黎炳道承包12年，黎炳道将其转包给海南金华林业有限公司种植桉树。合同到期后，原告在该地全部种植桉树，该土地四至范围不与第三人叶业精土地邻近。可是，第三人叶业精于2016年以被告向其颁发的第0110347号《农地承包证》中登记的”狂马岛”和”马腾地”两块承包地在原告所承包的”桶井地”范围内为由，提出异议。原告认为，被告向第三人叶业精颁发第0110347号《农地承包证》中所登记的”狂马岛”和”马腾地”这两块承包地侵犯原告的合法利益，原告据此提起本案行政诉讼，请求人民法院依法撤销被告向第三人叶业精颁发的第0110347号《农地承包证》中关于”狂马岛”、”马腾地”两块承包地的登记内容。
原告邓乾家、谢井贷向本院提交了以下证据：1.《农业生产责任制合同证》、《儋县农经社承包责任制合同书》、第0110413号《农地承包证》；2.第0110347号《农地承包证》、民事答辩状；3.《土地承包协议书》及红线图。
被告儋州市政府辩称：一、被诉颁证行为合法。2005年，全市换发《农村土地承包经营权证》时，老师村小组对第三人叶业精的承包地进行调查后，上报给排浦镇人民政府核实，并向被告申请办理《农村土地承包经营权证》，儋州市农业局对此进行审核后给第三人叶业精颁发第0110347号《农地承包证》，事实清楚，程序合法。二、原告主张其承包的”桶井地”涉案土地与第三人叶业精持有的第0110347号《农地承包证》登记的”狂马岛”、”马腾地”存在重叠没有事实根据。原告邓乾家的”桶井地”是由春花村小组发包的，而第三人叶业精的”狂马岛”、”马腾地”是由老师村小组发包的，发包方不一样，地名不一样，土地四至范围也不一样，不存在重叠的情况。
被告儋州市政府向本院提交了以下证据：《海南省农村土地承包经营权证登记表》（编号：0110347）。
第三人叶业精述称：一、被告颁发第0110347号《农地承包证》合法。叶业精家庭承包的”狂马岛”8亩旱地（四至：东至秀华地，南至旱田，西至旱田，北至王高地）和”马腾地”7亩旱地（四至：东至小江林地，南至旱田，西至橡胶地，北至旱田），是其家庭一直以来均享有承包经营权的土地，其家人此前也一直在该两块地上耕作。后来，叶业精的家人有一段时间没有在该两块地上耕作，原告便趁机在该两块地上抢种作物，强行占有其家庭该两块土地的承包权。但是，被告政府在颁发承包经营权时，基于叶业精家庭一直享有该两块地承包权的事实，向其家庭颁发了第0110347号《农村承包证》，确认叶业精家庭享有该两块土地在内的土地承包经营权。因此，被告政府颁发给叶业精家庭的第0110347号《农地承包证》，有事实根据和法律依据，颁证行为符合法律规定。二、原告的诉讼请求没有事实根据和法律依据，该诉讼请求应予驳回。原告提供的承包户为邓乾家的第0110413号《农地承包证》中，登记的30亩”桶井地”的四至为：东至桶井地，南至胶林，西至桶井田，北至桶井地；登记的20亩”桶井地”的四至为：东至老师人地，南至帝才地，西至桶井丫，北至兆松地。而原告提供的承包人为邓庆帮的《联合承包责任制合同书》中，登记的2块”桶井地”四至分别为：”东至桶井，南至龙山，西至桶井，北至桶井”和”东至老师，南至龙山，西至桶井，北至三娂”，且对注明的承包土地总亩数存在涂改。据此，根据该《联产承包责任制合同书》与该《农村土地承包经营权证》因登记的土地四至不一致等情形，被告政府为原告颁发2块”桶井地”的承包经营权证，既没有事实根据，也没有法律依据，故原告的诉讼请求应予驳回。综上所述，被告政府颁发给叶业精家庭的第0110347号《农地承包证》，确认其家庭享有”狂马岛”和”马腾地”的承包经营权，是有事实根据和法律依据的，该颁证行为应予维持。原告的诉讼请求没有事实根据和法律依据，故原告的诉讼请求应予驳回。
第三人叶业精向本院提交了以下证据：1.第0110347号《农地承包证》；2.第0110413号《农地承包证》；3.证人李某的出庭证言。
第三人春花村小组述称：一、涉案50亩”桶井地”是春花村小组的集体土地，自1980-1998年联产责任体制下放后，春花村小组依据农村土地承包经营政策法规，已将该地发包给邓乾家一家作为责任地承包（其中第一块地面积20亩，第二块地面积30亩），邓乾家一家一直在地上进行耕作，而且几十年来一直向村集体不间断的缴纳租金，这在每一年的租金缴纳表格中都能显示出来。因此，邓乾家一家是50亩”桶井地”的唯一合法承包经营户。二、2016年7月份，正值春花村小组村民邓乾家的家人在涉案50亩”桶井地”进行造林生产时，老师村小组的叶业精横加干涉，称该地是其继承人的祖宗地，并出示了儋州市政府颁发的第0110347号《农地承包证》，阻挠邓乾家一家生产经营，因而发生纠纷。三、叶业精出示的第0110347号《农地承包证》中登记的”狂马岛”和”马腾地”，该两块承包地的名称及四至与我村承包户邓乾家所承包的50亩”桶井地”的名称及四至完全不相符。综上，请法院根据事实和法律，依法维护村集体土地的合法发包权。
第三人老师村小组述称：”狂马岛”、”马腾地”和”桶井地”都是老师村小组的集体土地，”狂马岛””马腾地”和”桶井地”是不同的地块。
经审理查明：2005年9月30日，儋州市政府颁发第0110347号《农地承包证》，该证上记载：发包方为老师村小组，承包方代表为叶业精，承包方式是家庭承包，承包期限至2027年12月31日，承包地总面积53亩，承包地块总数为16块，其中”狂马岛”地块面积为8亩，四至为东至秀华地、南至旱田、西至旱田、北至王高地；”马腾地”地块面积为7亩，四至为东至小江林地、南至旱田、西至橡胶林、北至旱田。同日，儋州市政府颁发第0110413号《农地承包证》，该证上记载：发包方为春花村小组，承包方代表为邓乾家，承包方式是家庭承包，承包期限至2027年12月31日，承包地总面积140亩，承包地块总数为10块，其中”桶井地”30亩，四至为东至桶井地、南至胶林、西至桶井田、北至桶井地；”桶井地”20亩，四至为东至老师人地，南至帝才地，西至桶井丫，北至兆松地。
本院认为，依照《中华人民共和国行政诉讼法》第四十九条第（一）项”原告是符合本法第二十五条规定的公民、法人或者其他组织”、第二十五条第一款”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”和《最高人民法院关于行政诉讼证据若干问题的规定》第四条”公民、法人或者其他组织向人民法院起诉时，应当提供其符合起诉条件的相应的证据材料”的规定，当事人向人民法院起诉时，应当提供相应的证据材料证实其与被诉行政行为有利害关系。本案中，原告主张被告颁发的第0110347号《农地承包证》中关于”狂马岛”、”马腾地”两地块的登记内容侵犯了其承包”桶井地”的合法权益，但从第0110347号《农地承包证》和第0110413号《农地承包证》中关于”狂马岛”、”马腾地”、”桶井地”的登记内容来看，相关地块的名称、面积、四至等均不相同，而且地块的发包方分属不同的村民小组，被告儋州市政府与第三人老师村小组亦称”狂马岛”、”马腾地”和”桶井地”是不同的地块，故原告所提交的证据材料不足以证明被诉第0110347号《农地承包证》中登记的”狂马岛”、”马腾地”与其持有的第0110413号《农地承包证》中登记的”桶井地”存在交叉重叠的情形。因此，原告与被诉行政行为不存在利害关系，其不具备本案适格的原告主体资格，对其起诉应予驳回。依照《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）项的规定，裁定如下：
驳回原告邓乾家、谢井贷的起诉。
案件受理费50元，退还给原告邓乾家、谢井贷。
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。
审判长张德雄
审判员孔凡勇
审判员张成信
二○一七年十一月九日
法官助理李治
书记员买歌豪
书记员买歌豪
附：本裁定适用的相关法律依据
《中华人民共和国行政诉讼法》
第二十五条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。
有权提起诉讼的公民死亡，其近亲属可以提起诉讼。
有权提起诉讼的法人或者其他组织终止，承受其权利的法人或者其他组织可以提起诉讼。
第四十九条提起诉讼应当符合下列条件：
（一）原告是符合本法第二十五条规定的公民、法人或者其他组织；
（二）有明确的被告；
（三）有具体的诉讼请求和事实根据；
（四）属于人民法院受案范围和受诉人民法院管辖。
《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》
第三条有下列情形之一，已经立案的，应当裁定驳回起诉：
（一）不符合行政诉讼法第四十九条规定的；
（二）超过法定起诉期限且无正当理由的；
（三）错列被告且拒绝变更的；
（四）未按照法律规定由法定代理人、指定代理人、代表人为诉讼行为的；
（五）未按照法律、法规规定先向行政机关申请复议的；
（六）重复起诉的；
（七）撤回起诉后无正当理由再行起诉的；
（八）行政行为对其合法权益明显不产生实际影响的；
（九）诉讼标的已为生效裁判所羁束的；
（十）不符合其他法定起诉条件的。
人民法院经过阅卷、调查和询问当事人，认为不需要开庭审理的，可以迳行裁定驳回起诉。
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