海南省三亚市中级人民法院
p t ; ” > 行 政 判 决 书
（2016）琼02行初524号
原告张章新，男，51岁，汉族，现住三亚市。
原告谭兴会，女，53岁，汉族，现住三亚市。
原告张贵珍，男，59岁，汉族，现住三亚市。
原告钱进团，男，66岁，汉族，现住三亚市。
原告潘益弟，男，81岁，汉族，现住三亚市。
原告周尚邦，男，69岁，汉族，现住三亚市。
原告万贵华，女，59岁，汉族，现住三亚市。
原告赵理梅，男，76岁，汉族，现住三亚市。
原告潘龙文，男，47岁，汉族，现住三亚市。
以上九原告共同委托代理人郑月涛，男，62岁，汉族，现住海口市。
被告三亚市海棠区人民政府，住所地三亚市海棠区政府大院。
法定代表人孙耿，区长。
委托代理人王利东，海南惠海律师事务所律师。
委托代理人丁舰，三亚市海棠区人民政府工作人员。
第三人三亚市海棠区林旺农场，住所地三亚市海棠区林旺农场。
法定代表人钱进赐，该农场场长。
委托代理人杨昌宏，三亚市林海法律事务所法律工作者。
原告张章新等九人诉被告三亚市海棠区人民政府（下简称海棠区政府）及第三人三亚市海棠区林旺农场（下简称林旺林场）不履行处理农村集体土地承包关系纠纷法定职责一案，本院受理后，依法组成合议庭，于2017年5月10日公开开庭进行了审理。原告张章新、张贵珍、万贵华、赵理梅、潘龙文及共同委托代理人郑月涛，被告海棠区政府委托代理人王利东、丁舰，第三人委托代理人杨昌宏出庭参加诉讼。本案现已审理终结。
本案被诉行政行为：张章新等九原告根据已发生法律效力（2013）三亚民一终字第722号等裁定，以其属三亚市原林旺镇乡镇集体经济组织成员，没有取得集体土地承包经营权为由，要求被告处理其与第三人林旺林场的土地承包关系纠纷。被告2016年9月19日作出海棠府[2016]274号答复，仍以承包合同的履行争议问题属于法院管辖，政府无权认定为由，对张章新等九原告的申请不作处理。
原告张章新等九人诉称，1986年初，张章新等九原告集体从迁入海南行政区福建省三亚市××镇林旺农场，成为正式职工，全家也一同落户农场。根据国家第一轮土地承包政策，九原告分别获得农场分配的口粮水田和坡地承包经营权，并与农场签订了土地承包合同。从1992年开始，因在农场农业收入难以维持基本生活需要，原告张章新等九人相继到农场周边打零工为生。1995年，林旺农场对外出打工的九原告作出终止土地承包合同，收回承包地，并取消九原告的农场职工主体资格，取消再分配、承包土地的权利。2015年11月，九原告向被告提交《请求人民政府依法处理林旺农场职工与林旺农场土地使用权纠纷的报告》，要求被告处理九原告与林旺农场土地承包权纠纷。被告2016年9月19日作出海棠府[2016]274号答复，仍以承包合同的履行争议问题属于法院管辖，政府无权认定为由，对张章新等九原告的申请不作处理。因被告不依法履行法定职责，侵害了九原告的合法权益，故请求人民法院依法判决：一、撤销被告2016年9月19日作出的海棠府[2016]274号答复；二、依法对九原告与林旺农场土地承包关系纠纷作出处理，确定九原告的土地承包经营主体资格。
原告向本院提供如下证据：1、相关报告、答复及举报材料；2、相关裁判文书；3、土地承包合同及1986年全体职工水旱田分配明细表；4，九原告户口及身份证明。
被告海棠区政府辩称，一、根据三亚市海棠区国土资源管理分局出具的《关于林旺农场9位职工土地使用权争议一事有关情况的报告》，以及三亚市农业局出具的三农函[2015]245号《三亚市农业局关于张章新等9户人农场集体土地纠纷一案的函》，涉案土地所有权属于原林旺镇乡镇集体所有，而不属于林旺林场所有。其性质不是农民集体所有土地，也不是国家所有依法由农民集体使用的土地。二、林旺农场职工与林旺农场的关系。林旺农场系原林旺镇政府镇企业办下设的单位，不属于农村集体经济组织。林旺农场的职工属于乡镇企业法调整的企业职工。因此，林旺农场与林旺农场职工之间不是农村土地承包关系，而是属于商业性质的承包关系。三、根据《农村土地承包法》第五十一条、《农村土地承包经营纠纷调解仲裁法》第二十条、第二十二条，以及《最高人民法院关于审理涉及农村土地承包纠纷案件适用法律问题的解释》第一条之规定，只有涉及农村土地承包经营权的纠纷，才属于行政机关处理的范围，对于不属于农村土地承包经营权的商业性质的承包纠纷，应当通过民事诉讼的方式解决。四、被告2016年9月19日作出的海棠府[2016]274号答复，程序合法，其处理结果并无不当。故请求人民法院驳回原告的诉讼请求。
被告海棠区政府向本院提供如下证据：1、三亚市农业局出具的三农函[2015]245号《三亚市农业局关于张章新等9户人农场集体土地纠纷一案的函》；2、（2013）琼民申字第235号民事裁定。
第三人林旺林场述称，一、原告的起诉属重复起诉。原告诉求的主要焦点就是能否恢复涉案土地的承包经营问题。对此争议，已经三亚市中级人民法院、海南省高级人民法院作出生效裁判。原告现再起诉属重复起诉，依法应予以驳回。二、原告把”撤销被告2016年9月19日作出的海棠府[2016]274号答复”、”确认第三人取消九位农场职工的主体资格，取消分配承包农场土地的决定违法”以及”恢复九原告的土地承包经营主体资格和承包农场土地的合法权利”三个不同法律关系、不同主体、不同内容的诉讼请求一同提起诉讼，不符合合并审理的法律规定，应予驳回。三、原告因不履行合同，弃荒土地，第三人将土地收回，符合法律规定。综上，请求法院驳回原告的起诉。
第三人向本院提供相关裁判文书作为证据。
经庭审质证，原、被告及第三人所提供的证据，除了被告所提供证据2[（2013）琼民申字第235号民事裁定]，因与本案争议事实不具关联性，依法予以排除外，其余证据形式真实，来源合法，与争议事实有关联，可以作为认定本案争议事实的依据。
经审理查明，上世纪八十年代初，原三亚市林旺镇政府为壮大集体经济，在镇企业办下设林旺农场，将原属乡镇集体所有的湾应、文尖等荒山、荒坡，承包给张章新等林旺农场职工种植橡胶等经济作物。后张章新、张贵珍等职工相继从原籍将户口迁入原林旺镇，作为农业家庭户口落户林旺农场。落户后，张章新、张贵珍等职工1986年取得了林旺农场分配的水田等基本生活物资，并取得原林旺镇选民资格，参加各种医疗、社会保险。1997年，因九原告外出打工，原林旺镇就将原告等人的土地收回另行发包给他人。原告等人不服，2013年以林旺农场为被告，分别提起土地承包经营权纠纷民事诉讼。2013年11月，三亚市中级人民法院作出（2013）三亚民一终字第720号民事裁定，认为原告等人在第二轮承包时未分到责任田，属于《最高人民法院关于审理涉及农村土地承包纠纷案件适用法律问题的解释》第一条规定的”未实际取得土地承包经营权”之情形，应向行政主管部门申请解决，不能直接向法院起诉，因而裁定驳回原告等人的起诉。2014年原告等人向海棠湾镇政府（原林旺镇政府）提出要求林旺农场分配土地的申请。海棠湾镇政府经调查，于2014年6月27日作出海棠府函[2014]144号处理意见，认为：一、林旺农场的土地属于原林旺镇乡镇集体土地，职工只享有承包经营权，不同于一般村民的家庭承包经营权。二、土地承包合同的履行争议属法院的管辖范围，政府无权进行认定。该处理意见书作出后，原告等人一直向各部门反映，2015年11月又向海棠区政府提出要求处理与林旺农场土地使用权纠纷的报告。被告2016年9月19日作出海棠府[2016]274号答复，仍以承包合同的履行争议问题属于法院管辖，政府无权认定为由，对张章新等九原告的申请不作处理。
本院认为，因原告张章新、张贵珍等职工1986年取得了林旺农场分配的水田等基本生活物资，并取得原林旺镇选民资格，参加各种医疗、社会保险。故原告等人既有林旺农场职工身份，又具有原林旺镇乡集集体组织的成员身份。但原告等因在第二轮土地承包时，未能取得林旺农场分配的水田等基本生活物资而引发的纠纷，属于《最高人民法院关于审理涉及农村土地承包纠纷案件适用法律问题的解释》第一条第二款规定的”未实际取得土地承包经营权”之情形，应向行政主管部门申请解决。被告未予解决，属《中华人民共和国行政诉讼法》第四十七条规定的不履行法定职责之情形。故原告等人提出撤销被告2016年9月19日作出的海棠府[2016]274号答复，依法对九原告与林旺农场土地承包关系纠纷作出处理的诉讼请求，本院依法予以支持。综上，依照《中华人民共和国行政诉讼法》第四十七条、第七十条第（二）项、第七十二条之规定，判决如下：
一、撤销被告三亚市海棠区人民政府2016年9月19日作出的海棠府[2016]274号答复；
二、被告三亚市海棠区人民政府应在本判决发生法律效力之日起两个月内，依法对原告等因未能取得林旺农场分配的水田等土地承包经营权而引发的纠纷作出处理。
案件受理费50元，由被告三亚市海棠区人民政府负担。
如不服本判决，可在判决书送达之日起十五日内提起上诉，向本院递交上诉状，并按对方当事人的人数递交上诉状副本，上诉于海南省高级人民法院。
审判长陈兴科
审判员吉红
人民陪审员李新华
二Ｏ一七年六月二十七日
书记员熊冰清
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[{法规名称:\'《中华人民共和国婚姻法（2001年）》\',Items:[{法条名称:\'第三十二条第一款\',法条内容:\' 第三十二条
男女一方要求离婚的，可由有关部门进行调解或直接向人民法院提出离婚诉讼。[ly]
人民法院审理离婚案件，应当进行调解；如感情确已破裂，调解无效，应准予离婚。[ly] 有下列情形之一，调解无效的，应准予离婚：[ly]
（一）重婚或有配偶者与他人同居的；[ly] （二）实施家庭暴力或虐待、遗弃家庭成员的；[ly] （三）有赌博、吸毒等恶习屡教不改的；[ly]
（四）因感情不和分居满二年的；[ly] （五）其他导致夫妻感情破裂的情形。[ly]
一方被宣告失踪，另一方提出离婚诉讼的，应准予离婚。[ly]\'},{法条名称:\'第三十六条第一款\',法条内容:\' 第三十六条
父母与子女间的关系，不因父母离婚而消除。离婚后，子女无论由父或母直接抚养，仍是父母双方的子女。[ly]
离婚后，父母对于子女仍有抚养和教育的权利和义务。[ly]
离婚后，哺乳期内的子女，以随哺乳的母亲抚养为原则。哺乳期后的子女，如双方因抚养问题发生争执不能达成协议时，由人民法院根据子女的权益和双方的具体情况判决。[ly]\'},{法条名称:\'第三十八条第一款\',法条内容:\'
第三十八条 离婚后，不直接抚养子女的父或母，有探望子女的权利，另一方有协助的义务。[ly]
行使探望权利的方式、时间由当事人协议；协议不成时，由人民法院判决。[ly]
父或母探望子女，不利于子女身心健康的，由人民法院依法中止探望的权利；中止的事由消失后，应当恢复探望的权利。[ly]\'},{法条名称:\'第三十九条第一款\',法条内容:\'
第三十九条 离婚时，夫妻的共同财产由双方协议处理；协议不成时，由人民法院根据财产的具体情况，照顾子女和女方权益的原则判决。[ly]
夫或妻在家庭土地承包经营中享有的权益等，应当依法予以保护。[ly]\'}]}]};if ($(\"#divTool_Summary\").length >
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