海南省高级人民法院
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（2017）琼行终205号
海南省高级人民法院
行政判决书
（2017）琼行终205号
上诉人（原审原告）卞外生，男，1946年4月9日出生，汉族，住东方市，住东方市。
委托代理人苏汝秀，海南鳞洲律师事务所律师。
被上诉人（原审被告）东方市人民政府，住所地东方市八所镇东府路市委3号办公楼。
法定代表人邓敏，该市市长。
委托代理人杜林真，东方市国土环境资源局科员。
原审第三人东方市八所镇皇宁小学，住所地东方市八所镇感恩北路。
法定代表人郑群波，该小学校长。
委托代理人文成山，该小学教导主任。
上诉人卞外生因其诉被上诉人东方市人民政府（以下简称为东方市政府）、原审第三人东方市八所镇皇宁小学（以下简称为皇宁小学）土地行政登记一案，不服海南省第二中级人民法院（2016）琼97行初374号行政判决，向本院提起上诉。本院依法组成合议庭，对本案进行了审理，现已审理终结。
本案被诉行政行为：东方市政府于2007年6月向皇宁小学颁发东方集用（2007）字第028号《集体土地使用证》（以下简称第028号土地证）。该证载明：土地使用者，东方市八所镇皇宁小学；土地所有者，东方市八所镇皇宁村农民集体；使用权面积，21490.3平方米；用途，教育；使用权类型，划拨。
原审查明,本案争议地位于皇宁小学西侧，实际争议面积为328.92平方米。卞外生主张争议地系其承包地，地名为”山柳园”，其提交的《海南省农村土地承包经营权证登记表》上记载面积为0.85亩。2006年11月27日，皇宁小学向东方市政府申请土地使用权登记。东方市政府在取得土地所有权人东方市八所镇皇宁村村民委员会（以下简称为皇宁村委会）出具《证明》同意，并经地籍调查、逐级审核审批等程序后，于2007年6月将包括争议地在内共计21490.3平方米的土地使用权登记发证给皇宁小学，即本案被诉的第028号土地证。2012年9月20日，东方市住房保障与房产管理局与卞外生之子卞维尚签订《东方市新小线工程征收项目房屋及附属物征收补偿协议》，对卞维尚在争议地上经营的小卖部及附属物进行征收补偿。2014年1月26日，卞维尚签名领取了争议地上青苗等附着物的补偿款。2015年11月27日，东方市八所镇人民政府（以下简称为八所镇政府）作出《关于卞外生要求皇宁村委会解决拖欠其征地补偿款诉求的调查报告》，经调查证实本案争议地在皇宁小学持有的第028号土地证范围内，并核实卞外生提交的《海南省农村土地承包经营权证登记表》在镇政府和东方市农业局档案中没有备案，卞外生也未和皇宁村委会签订承包合同，与卞外生有关的农村土地承包经营权证上均无”山柳园0.85亩”的记载。该调查报告建议将卞外生主张权属的564.28平方米土地中的235.36平方米征地补偿款拨付给卞外生，余下的328.92平方米本案争议地由卞外生通过司法程序解决。皇宁村委会已向卞外生拨付了235.36平方米的征地补偿款。卞外生以争议地系其承包地，东方市政府向皇宁小学颁发第028号土地证侵犯其土地承包经营权为由提起本案行政诉讼，请求撤销第028号土地证。
另查明，卞外生与其子卞维尚在同一户口，并未分户。
原审认为，本案的争议焦点是东方市政府向皇宁小学颁发第028号土地证的土地来源是否清楚合法，颁证程序是否合法。
一、关于东方市政府颁发第028号土地证的土地来源是否清楚合法的问题。《中华人民共和国土地管理法》第六十一条规定：”乡（镇）村公共设施、公益事业建设，需要使用土地的，经乡（镇）人民政府审核，向县级以上地方人民政府土地行政主管部门提出申请，按照省、自治区、直辖市规定的批准权限，由县级以上地方人民政府批准；其中，涉及占用农用地的，依照本法第四十四条的规定办理审批手续。”《海南经济特区土地管理条例》第三十一条规定：”乡镇企业、乡（镇）村公共基础设施、公益事业等乡（镇）村建设需要使用集体所有土地的，报请市、县、自治县人民政府批准，其中涉及农用地转为建设用地的，应当按照规定权限办理农用地转用审批手续。”本案中，皇宁小学向东方市政府申请土地使用权登记的主要用途是学校建设需要，属于公益事业建设需要，并且已征得学校建设用地所在的集体土地所有权人皇宁村委会的同意。在此情形下，依照上述规定，皇宁小学在报请东方市政府批准后可取得该集体土地的使用权。因此，第028号土地证项下土地使用权来源清楚合法。卞外生认为第028号土地证记载该集体土地使用权取得方式为”划拨”，违反法律规定。依照《中华人民共和国土地管理法》第五十四条第（二）项的规定，建设单位使用国有土地用于公益事业的情形下才能以划拨方式取得，故第028号土地证上记载使用权类型为”划拨”确属不当。但依照上述规定，因公益事业建设需要使用集体所有土地的，经过县级人民政府批准后可取得该集体土地的使用权，故卞外生该主张不足以否定皇宁小学取得的第028号土地证项下土地使用权来源的合法性。卞外生还认为争议地系其承包地，并据此主张东方市政府的颁证行为侵犯了其土地承包经营权。但从卞外生所提交的证据来看，其主张对争议地享有承包经营权的证据是《海南省农村土地承包经营权证登记表》，然而事实上卞外生就争议地并没有取得农村土地承包经营权证书，该登记表亦没有相关政府主管部门的盖章，且经过八所镇政府核实，该登记表在八所镇政府和东方市农业局档案中均没有备案，卞外生也未提交其与皇宁村委会签订有承包合同等证据，不足以证明其对本案争议地享有合法的承包经营权，故卞外生要求撤销第028号土地证的理由不充分，不予支持。
二、关于东方市政府颁发第028号土地证的程序是否合法的问题。《土地登记规则》第六条规定：”土地登记依照下列程序进行：（一）土地登记申请；（二）地籍调查；（三）权属审核；（四）注册登记；（五）颁发或者更换土地证书。”从本案查明的事实来看，在皇宁小学提出土地使用权登记申请后，东方市政府在经过地籍调查、权属审核等程序后，才予以注册登记和颁发土地证书。因此，东方市政府颁发第028号土地证符合法定程序。
综上所述，东方市政府向皇宁小学颁发第028号土地证的土地权属来源清楚合法，符合法定程序。卞外生的诉求理由不充分，不予支持。依照《中华人民共和国行政诉讼法》第六十九条的规定，判决驳回卞外生的诉讼请求。案件受理费50元，由卞外生负担。
卞外生上诉称，一、东方市政府颁证的事实不清。（一）东方市政府对争议地权属性质认定混乱。《地籍调查表》记载颁证土地为国有土地，而在《土地登记审批表》和第028号土地证中又认定为集体土地。地籍调查在先，审批、颁证在后，在土地权属性质不清的情况下颁证，颁证行为明显错误。（二）申请登记范围与宗地图的界址不一致。皇宁小学申请登记的范围是”我校于1967年建成使用至今”的土地，《土地登记审批表》中也称是”补办手续”。说明申请用地的范围仅限于原学校使用的土地，而学校使用的范围有围墙为界，《地籍调查表》也注明是围墙。可见皇宁小学申请登记的是学校围墙以内的土地，对学校围墙外的土地并未申请登记。但第028号土地证颁证土地已超过申请范围，将申请人不申请登记的土地予以颁证，违背了申请人的意思表示，显属不当。二、东方市政府颁证的程序违法。东方市政府在颁发第028号土地证时未按《土地登记规则》第十五条的规定进行公告，且地籍调查表中除皇宁小学校长郑群波外，没有其他相邻人签名，程序不当。三、东方市政府的颁证行为侵犯卞外生的合法权益。《海南省农村土地承包经营权证登记表》记载的”山柳园”地块的四至（东至围墙，南至校门，西至公路，北至公路）证明卞外生长期使用皇宁小学围墙外土地和其用地与现场吻合的事实。该表是颁发农村承包经营权证的基础材料，虽不能证明卞外生对争议地享有合法的承包经营权，但该表是皇宁村委会盖章认可的，能证明卞外生使用争议地的事实。东方市政府将争议地颁证给皇宁小学，侵犯了卞外生的土地使用权。综上，东方市政府颁发第028号土地证认定事实不清，程序不当，请求撤销原审判决，并撤销东方市政府颁发的第028号土地证。
东方市政府和皇宁小学均未提交书面答辩意见。
卞外生在提起上诉时，提交了原皇宁村委会主任卢二定于2016年12月14日出具的内容为”当时出示证明只能在学校围墙内，其他我们无法证明”的证明书，其据此拟证明皇宁村委会当时只同意将学校围墙内的土地登记至皇宁小学名下。另外，卞外生以卢二定不能坐车为由申请本院对上述证明书的真实性进行核实。本院认为，皇宁村委会于2006年11月28日出具的土地权源《证明》的内容是”村委会同意办理学校国有土地证”，并不能由此推断出村委会仅同意以围墙为界进行土地登记的意思表示，而皇宁村委会在争议发生后至今并未对本案被诉颁证行为提出异议，故卢二定出具的证明书并不能证实卞外生拟证明的内容。另外，卢二定的证明书属证人证言，卞外生提供该证明书时既未按《最高人民法院关于行政诉讼证据若干问题的规定》第十三条第（一）、（四）项要求写明证人的姓名、年龄、性别、职业、住址等基本情况和附有证人的身份证明文件，也未在举证期限内申请证人出庭作证，根据上述规定的第七条第二款”原告或者第三人在第一审程序中无正当事由未提供而在第二审程序中提供的证据，人民法院不予接纳”的规定，对卢二定的证明书，本院不予接纳。
本院经审理查明的事实与原审判决认定的事实一致。本院另查明：一、在卞外生提交的证据《海南省农村土地承包经营权证登记表》中，”填表单位”处有”符启慧”的签名和皇宁村委会的公章，签章时间是”1999.10.28”。另外，承包地块填写有包括本案争议地”山柳园”在内的五块土地。二、《地籍调查表》中”双方指界人签字盖章”栏仅有皇宁小学法定代表人”郑群波”的签名。三、第028号土地证项下土地四至中，除北至处以学校围墙为界与私人住宅相邻外，东、南、西至处均为道路。四、八所镇政府在其于2015年11月27日向东方市政府督查室作出的《关于卞外生要求皇宁村委会解决拖欠其征地补偿款诉求的调查报告》中，明确皇宁村委会未将争议地征地款拨付给卞外生的原因是：第一，皇宁小学就争议地持有土地权属证书；第二，村内还有其他类似争议，如将争议地征地款拨付给卞外生，不利于村内稳定；第三，村委会和村民小组从未在学校西门规划宅基地和其他使用地给任何村民。
本院认为，《土地登记规则》第六条规定：”土地登记依照下列程序进行：（一）土地登记申请；（二）地籍调查；（三）权属审核；（四）注册登记；（五）颁发或者更换土地证书。”本案中，皇宁小学在颁证前已建成投入使用，在其2006年11月27日提出土地使用权登记申请后，东方市政府及其职能部门在取得土地所有权人皇宁村委会的同意，并经地籍调查、审批等程序后，将包括本案328.92平方米争议地在内共计21490.3平方米的土地使用权登记至皇宁小学名下，该颁证行为认定事实清楚，亦符合上述《土地登记规则》规定的基本程序。
本案的争议焦点主要是卞外生提交的《海南省农村土地承包经营权证登记表》能否证明争议地系其家庭承包地及能否据此撤销被诉颁证行为的问题。根据本案查明事实，上述承包经营权证登记表的填写时间是1999年10月28日，但经过八所镇政府核实，该登记表在八所镇政府和东方市农业局档案中均无备案，东方市政府于2005年向卞外生家庭颁发《农村土地承包经营权证》时也未对其家庭就争议地享有承包经营权予以确认，卞外生亦未提交其与皇宁村委会签订有承包合同等证据。而且，八所镇政府作出的《关于卞外生要求皇宁村委会解决拖欠其征地补偿款诉求的调查报告》显示，皇宁村委会作为土地所有权人，其对东方市政府向皇宁颁发第028号土地证并无异议，但对卞外生家庭就争议地享有承包经营权的事实并不认可。另外，卞外生在上诉状中也认可上述承包经营权证登记表不能证明其对争议地享有合法的承包经营权。因此，《海南省农村土地承包经营权证登记表》不足以证明卞外生家庭对争议地享有合法的承包经营权，卞外生仅以其对争议地的实际使用为由请求撤销第028号土地证，缺乏事实根据和法律依据，本院不予支持。
卞外生还上诉认为东方市政府在地籍调查时认定颁证土地是国有土地，审批过程中又认定为集体土地，在土地权属性质不清的情况下颁证属认定事实不清。然而，地籍调查是登记前对土地的权属、四至和面积等情况所进行的在先核查行为，其结果虽是土地登记的依据，但并不意味着审批时对不当的调查结果不能进行更正，故在没有证据证明颁证土地系国有土地的情况下，东方市政府将其认定为集体土地不属认定事实不清。卞外生另上诉认为颁证程序存在相邻人未指界和未公告的问题，属程序违法。根据本案查明事实，颁证土地北至处存在以皇宁小学围墙为界的相邻人，东方市政府地籍调查时未通知该相邻人指界确属不当，但卞外生无证据证明该程序瑕疵侵害其本人及该处相邻人的权益。至于公告的问题，东方市政府诉讼中未提交证据证明公告征询异议的事实，但因卞外生无充分证据证明其对争议地享有合法使用权，故该程序瑕疵亦不对其合法权益产生影响。因此，东方市政府作出被诉颁证行为的程序虽存在瑕疵，但并不对卞外生的合法权益产生影响，卞外生据此请求撤销被诉颁证行为，证据不足，本院不予支持。
综上，东方市政府颁发第028号土地证认定事实清楚，其基本程序符合法规规定，适用法律亦无不当。原审判决认定基本事实清楚，适用法律和案件处理结果正确，应予维持。卞外生的上诉请求及理由缺乏事实根据和法律依据，本院不予支持。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，判决如下：
驳回上诉，维持原判。
二审案件受理费50元由上诉人卞外生负担。
本判决为终审判决。
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审判长黄胜敏
审判员郑怀全
审判员麻红丽
书记员王婉
附：本判决适用的相关法律依据
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