海南省高级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼行终1663号
海南省高级人民法院
行政裁定书
（2017）琼行终1663号
上诉人（原审第三人）：文昌市重兴镇联星村民委员会文城村民小组,住所地海南省文昌市重兴镇联星村民委员会文城村民小组。
法定代表人：林玉莲,组长。
委托诉讼代理人：黄福昌，男，1952年5月20日出生，汉族，文昌市重兴镇文南中学退休教师，住海南省文昌市重兴镇文南中学。
被上诉人（原审原告）：文昌市重兴镇���大村民委员会文东村民小组,住所地海南省文昌市重兴镇光大村民委员会文东村民小组。
法定代表人：邓大镜，组长。
委托诉讼代理人：黄小曼，文昌市重兴镇光大村民委员会文东村民小组村民，住海南省文昌市重兴镇光大村民委员会文东村民小组。
原审被告：文昌市人民政府，住所地海南省文昌市清澜经济开发区市政府办公大楼。
法定代表人：王晓桥，市长。
委托诉讼代理人：杨爽，文昌市人民政府法制办公室工作人员。
委托诉讼代理人：伍一叶，海南外经律师事务所律师。
原审第三人：邓大亮，男，1971年12月30日出生，汉族，住海南省文昌市。
上诉人文昌市重兴镇联星村民委员会文城村民小组(以下简称文城村小组)因与被上诉人文昌市重兴镇光大村民委员会文东村民小组（以下简称文东村小组）、原审被告文昌市人民政府（以下简称文昌市政府）及原审第三人邓大亮土地行政管理纠纷一案，不服海南省第一中级人民法院（2017）琼96行初79号行政裁定，向本院提起上诉。本院于2017年10月25日受理后，依法组成合议庭，于2017年11月10日对本案进行了听证。上诉人文城村小组的法定代表人林玉莲及其委托诉讼代理人黄福昌，被上诉人文东村小组的委托诉讼代理人黄小曼，原审被告文昌���政府的委托诉讼代理人杨爽、伍一叶，原审第三人邓大亮参加听证。本案现已审理终结。
一审法院认定：涉案土地位于文昌市重兴镇联星十九行坡，面积为30.12亩。经文城村小组申请，2004年12月19日，文昌市政府将涉案土地登记确认归文城村小组集体所有，并给其颁发了文集有（2004）第×××号《集体土地证》（以下简称第×××号证）。文东村小组不服该颁证行为，以涉案土地中有9.31亩土地属其集体所有为由，于2017年5月10日向一审法院提起诉讼，请求撤销第×××号证。一审审理期间，经文东村小组申请，一审法院委托文昌市政府将文东村小组提交的9.31亩争议地界址点坐标表记载的坐标点与第×××号证项下的土地坐标进行套图比对，以核对9.31亩争议地是否坐落在第×××号证的土地范围内。文昌市国土资源局经套图对比，作出文土资函﹝2017﹞884号《关于确定争议地具体位置及面积问题的复函》（以下简称884号《复函》），载明争议的9.31亩土地未坐落在第×××号证项下土地范围内。
一审法院认为，根据《中华人民共和国行政诉讼法》第二十五条第一款之规定，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��才有权提起诉讼。根据884号《复函》可以认定，文东村小组主张的9.31亩争议地并未坐落在第×××号证项下土地范围内。文东村小组与文昌市政府给文城村小组颁发第×××号证的行政行为不具有利害关系，其不具有本案原告主体资格。遂裁定驳回文东村小组的起诉。
上诉人文成村小组上诉认为一审裁定驳回起诉结果正确，但认定事实错误，程序违法，请求予以纠正。事实和理由：一、一审裁定认为被上诉人主张的9.31亩土地未座落在上诉人的第×××号证土地范围内错误，违反土地权属争议处理复议前置原则，请求予以纠正。一审法院既然明知被上诉人主张的土地为未确权的争议地，应当告知当事人向文昌市政府提出土地权属争议处理申请，当事人对土地权属争议处理决定不服，在法定期限内先向海南省人民政府申请行政复议，对行政复议不服，才可以提起行政诉讼。一审法院直接插手处理土地权属争议案件，程序违法。二、文昌市政府应一审法院协助套图比对的委托，不顾2004年已对上诉人的土地予以公告颁证的事实，无中生有地为被上诉人虚构出9.31亩争议土地，并作出相关复函答复一审法院，将实际坐落在上诉人集体土地用地范围内的争议地排除出其用地范围错误。三、一审法院滥用自由裁量权，迳行采纳文东村小组提供的虚假土地界址图。该虚假土地界址图没有宗地编号，没有地籍图号，也没有绘图员及审核员的签名盖章，一审法院将这样的土地界址图委托文昌市政府作出的��图结果及复函当然不正确，应予纠正。
被上诉人文东村小组答辩称：一审裁定认定事实清楚，程序合法，请求维持一审裁定。
原审被告文昌市政府述称：一、上诉人是对一审裁定中认定的部分事实不服提起的上诉，既没有请求撤销一审裁定，也没有请求撤销被诉的颁证行为，其上诉不符合《中华人民共和国行政诉讼法》第八十五条的规定，依法应当予以驳回。二、一审裁定没有将涉案的9.31亩土地认定为权属争议土地，对于涉案的9.31亩土地的争议处理不适用土地权属争议调处程序，更不适用复议前置程序。上诉人认为一审裁定违反法定程序的理由不成立。三、涉案的9.31亩土地是文东村小组主张的文城村小组正在使用的土地。该9.31亩土地的坐落情况是根据上述两个村小组对其利用土地进行测量的坐标点，经套图比对涉案的第×××号证项下土地范围后得出的结论，即9.31亩土地不在第×××号证项下用地范围内。一审法院据此认定文东村小组与被诉颁证行为没有利害关系，认定事实清楚，应予维持。
原审第三人邓大亮述称：一审裁定认定事实清楚，程序合法，请求予以维持。其在一审期间为了确定自己的用地是否在上诉人的第×××号证下，自行委托测绘了用地界址。因测绘部门称不能给个人出具证明，故测绘人员没有在测绘结果上签名盖章。如有必要，请求二审法院重新组织测绘。
二审期间，为回应当事人诉求，实质解决纠纷，本院委托文昌市政府国土部门对涉案的9.31亩土地界址进行测绘，并与第×××号证项下土地进行套图比对。2017年12月6日上午，本院组织各方当事人对涉案的9.31亩土地进行现场勘查。在各方当事人均参与指界的情况下，文昌市政府国土部门指定的测绘人员对涉案的9.31亩土地进行界址测绘。经与第×××号证项下土地界址进行套图比对后，文昌市国土资源局于2017年12月11日向本院作出文土资函﹝2017﹞1754号《文昌市国土资源局关于案件协助办理有关问题的复函》（以下简称1754号《复函》）。该复函确认涉案的9.31亩土地与第×××号证项下土地未存在重合或交叉，并附有勘测定界图。经本院组织各方当事人对该复函及附件进行质证，被上诉人、原审被告及原审第三人对该复函及附件内容未持异议，上诉人认为二审法院超越法定职权调取该证据不当。
本院认为：上诉人认为一审裁定结果正确，但认定事实错误，有权依法请求二审法院予以审查。结合各方当事人的诉辩意见，本案的审查重点有以下三个方面：
一、关于涉案的9.31亩土地是否坐落在第×××号证项下土地范围内的问题。鉴于本次勘测定界是在二审法院的组织下，各方当事人参与指界，由专门的国土测绘人员通过操作专业测绘工具取得涉案的9.31亩土地界址点坐标，并���先前形成的涉案土地测绘数据进行套图比对，比对的数据客观准确，比对的方法符合相关规定，本院对比对结果予以确认。根据文昌市国土资源局依法作出的1754号《复函》，可以认定涉案的9.31亩土地并未坐落在第×××号证项下土地范围内，一审裁定据此认定文东村小组与被诉颁证行为没有利害关系并无不当。
二、关于一审裁定是否违反土地权属争议处理复议前置原则的问题。诚然，法院不具有土地管理行政职权，不能直接对涉案的土地权属进行确权。本案中，法院在一审包括本次二审，仅对土地测绘比对结果进行是��存在交叉重合的判断，由此得出文东村小组是否与被诉颁证行为有利害关系，是否是适格原告的结论，并未作出土地权属争议处理决定，更未对涉案的9.31亩土地进行确权。一审法院驳回文东村小组的起诉，对上诉人文城村小组持有的第×××号证的效力没有任何影响，只是确定了争议的9.31亩土地原本就不在第×××号证项下土地范围内。利害关系人如要主张9.31亩土地的权属确认，应另行向有权机关提出。如有权机关认为9.31亩土地存在权属争议，将依法按照土地权属争议处理程序处理，当事人对土地权属争议处理决定不服，即可行使申请行政复议、提起行政诉讼的权利。
三、关于本院委托文昌市政府相关职能部门对争议地进行测绘及套图比对是否超越法定职权的问题。本院在主持听证时，上诉人及原审第三人均同意请求政府职能部门对争议地重新进行测绘和套图比对。根据《最高人民法院关于行政诉讼证据若干问题的规定》第二十三条之规定，原告或第三人，确因客观原因不能自行收集的其它证据材料，可以申请人民法院调取。一审期间文东村小组为确定争议土地是否在第×××号证项下土地范围内，自行委托测绘，其测绘结果未能得到测绘单位的盖章确认。因本案确属当事人因客观原因不能自行收集证据的情形，为化解纠纷，在双方当事人均希望重新核实测绘的情况下，本院同意调取该证据并未违反相关规定。上诉人文城村小组在听证时认可由二审法院委托文昌市政府相关职能部��重新测绘套图，且在本院的组织下参加了对争议地的测绘走界、指界，但在测绘套图结果不利于己方的情况下，提出二审法院超越法定职权，测绘套图违法的意见，违反了诚信诉讼的相关规定，本院予以谴责。
综上，上诉人混淆了法院司法判断权与土地行政管理权的职能范围和表现形式，对如何主张土地权利认识模糊，二审法院依申请委托测绘套图比对并无不当。上诉人的上诉理由本院不予以采纳，上诉请求本院不予以支持。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，裁定如下：
驳回上诉，维持原裁定。
本裁定为终审裁定。
审判长叶珊茹
审判员魏文豪
审判员王山元
二〇一七年十二月二十五日
法官助理徐芝苹书记员李宗帅
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，判决或者裁定驳回上诉，维持原判决、裁定；
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