海南省第二中级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼97行初161号
海南省第二中级人民法院
行政判决书
（2017）琼97行初161号
原告白沙黎族自治县牙叉镇营盘村委会什莫老村民小组（原什莫老经济社）,住所地白沙黎族自治县牙叉镇营盘村委会。
负责人符永胜，该组组长。
委托诉讼代理人符玉琼，女，黎族。
委托诉讼代理人莫颜华，男，壮族。
被告白沙黎族自治县人民政府，住所地白沙黎族自治县牙叉镇滨河北路一号县政府大楼。
法定代表人胡翔，该县县长。
委托诉讼代理人陈开拓，该县人民政府法制办公室工作人员。
委托诉讼代理人林大进，海南法立信律师事务所律师。
第三人白沙黎族自治县国营白沙农场（原海南省国营牙叉农场），住所地白沙黎族自治县牙叉镇金沙西路**号。
负责人周怀胜，该场场长。
委托诉讼代理人余志勇，该场国土资源科工作人员。
原告白沙黎族自治县牙叉镇营盘村委会什莫老村民小组（以下简称什莫老村民小组）诉被告白沙黎族自治县人民政府（以下简称白沙县政府）及第三人白沙黎族自治县国营白沙农场（以下简称白沙农场）土地所有权行政登记纠纷一案，于2017年3月14日向本院提起行政诉讼，本院于同日立案受理后依法向被告送达了起诉状副本及应诉通知书。本院依法组成合议庭，于2017年4月26日依照第一审程序公开开庭审理了本案。原告什莫老村民小组的委托诉讼代理人符玉琼、莫颜华，被告白沙县政府的委托诉讼代理人陈开拓、林大进，第三人白沙农场的委托诉讼代理人余志勇到庭参加诉讼。本案现已审理终结。
被告白沙县政府于2004年11月18日经审批向第三人白沙农场颁发了白国用（2004）第105号《国有土地使用证》（以下简称《国有土地使用证》），该地××县，地号为N003，东至牙炳四队经济社，南至白邦公路，西至国有土地，北至对俄三队经济社，地类（用途）为园地，面积为7041776.6平方米。
原告什莫老村民小组诉称：2016年11月22日下午，原告的村民因宅基地纠纷而引发的其他案件在白沙县人民法院审理开庭，庭审过程中原告的村民才知道被告白沙县政府于2004年单方将原告的集体土地（包括宅基地）全部划为国有，归第三人白沙农场（原国营牙叉农场）使用，并给第三人颁发了土地证。被告给第三人颁发土地证的行为严重损害了原告的合法权益，故请求人民法院依法撤销被告给第三人颁发的土地证，将土地归还给原告。
原告什莫老村民小组没有向本院提交证据。
被告白沙县政府辩称：一、被告颁发《国有土地使用证》事实清楚，程序合法。该《国有土地使用证》项下的土地自1963年以来一直由第三人白沙农场种植橡胶。2004年全省进行农村土地确权登记发证工作，县土地确权工作组在牙叉镇人民政府的配合下，对土地周围情况进行调查、摸底，向当事人宣传了土地确权相关法律法规，并向原告和第三人发出了指界通知书，要求双方到现场指界，第三人委托国土员符壮备指界。2004年12月20日，双方按照有关规定到现场指界完毕后，原告法定代表人拒绝在《土地权属界线核定书》上签名盖章，第三人白沙农场在《土地权属界线核定书》上签名盖章。发证前，被告在村委会进行了公告，公告期间，没有相关单位、人员提出书面异议。依据《海南省确定土地权属若干规定》第十五条、第十七条规定，该《土地权属界线核定书》有效。二、被告颁发《国有土地使用证》适用法律正确。根据实地调查核实，根据《海南省土地权属确定与争议处理条例》第九条”1982年5月14日《征用土地条例》发布以前，国有农场和周边经济组织相互越界使用至今的土地，现由国有农场使用的，土地使用权确定给国有农场；现由周边农村集体经济组织使用的，土地所有权确定给农村集体经济组织农民集体所有”之规定，被告颁发《国有土地使用证》适用法律正确。综上，原告要求撤销《国有土地使用证》无事实和法律依据，应予驳回。
被告白沙县政府向本院提交的证据有：1.《土地确权登记发证申请书》，2.《土地登记法人代表身份证明书》，3.《指界委托书》，4.李荣、符壮备身份证，5.《农村地籍调查表》；证据1-5均证明被诉颁证具体行政行为符合程序规定，6.《宗地地类及界址点成果表》，7.《土地权属界线核定书》，证据6-7证明土地来源清楚，程序合法；8.核定书附图（海南省国营牙叉农场宗地图），证明被诉颁证具体行政行为符合程序规定；证据9.《土地登记申请审批表》，证明土地来源清楚，程序合法。
第三人白沙农场述称：原告提出异议的土地是白沙农场即原牙叉农场于1963年种植橡胶的土地，2007年农场被周边的不法分子拔掉橡胶树搞破坏，造成白沙农场都不能重新利用土地。2004年确权的时候白沙农场就向政府申请了重新确权，根据法律规定，被告确权发证给白沙农场事实清楚，符合法律规定，请求法院依法驳回原告的诉讼请求。
第三人白沙农场没有向本院提交证据。
经庭审质证，原告对被告白沙县政府提交的证据的质证意见是：对证据1的真实性、合法性有异议，与本案无关，该申请书上没有盖章；对证据2的真实性无异议，但土地登记方面有异议，与本案无关；对证据3的真实性、合法性无异议；对证据4的真实性无异议，但对其合法性有异议，该证据与本案无关；对证据5的真实性无异议，但对其合法性有异议，该证据与本案无关；对证据6的真实性、合法性有异议，该证据与本案无关；证据7不合理也不合法，且与本案无关；对证据8的合法性、真实性无异议，但该证据与本案无关；对证据9的真实性不予认可。
第三人白沙农场表示对被告提交的所有证据的真实性、合法性、关联性均无异议。
本院对被告白沙县政府提交的证据的认证意见是：被告所提交的证据均来源合法、内容客观真实，与本案事实具有关联性，且相互印证，对证据的真实性、合法性、关联性均予以确认，可依法采信作为认定本案相关事实的根据。被告提交的全部证据显示，第三人白沙农场向被告提交确权登记申请，被告受理申请后，进行了地籍调查、现场指界、权属界限核定、审批等一系列工作，在证据确凿、事实清楚的基础上给第三人颁发了《国有土地使用证》。此外，土地权属界线核定书附图显示，原告什莫老村民小组所有的两块土地，地号为N003C1、N003C2，与第三人享有使用权的N003地块相邻，三块土地之间以及与相邻土地之间权属界线清晰，没有发生重合。但是，证据显示被告的颁证过程也存有一定瑕疵，其一是《土地权属界线核定书》上没有相邻人什莫老村民小组参与指界签名或者相关备注，其二是《审批表》上没有审查人的签章，其三是没有公告材料。
经审理查明，本案第三人白沙农场持有的《国有土地使用证》项下的土地自上世纪六十年代以来一直由白沙农场种植橡胶。2004年全省进行农村土地确权登记发证工作时，白沙农场向被告白沙县政府申请确权登记，被告于2004年11月18日经审批向第三人颁发了《国有土地使用证》。根据该证记载，该地位于白沙县牙叉镇，地号为N003，东至牙炳四队经济社，南至白邦公路，西至国有土地，北至对俄三队经济社，地类（用途）为园地，面积为7041776.6平方米。2016年11月，原告什莫老村民小组在其他案件中得知被告于2004年向第三人颁发了《国有土地使用证》，原告认为被告单方将其集体土地（包括宅基地）全部划为国有，归第三人白沙农场（原国营牙叉农场）使用，并给第三人颁发了土地证，被告的颁证行为严重损害其合法权益，便向本院提起行政诉讼，请求本院撤销被告给第三人颁发的《国有土地使用证》。
另查明，被告于2004年同时给原告的两块土地进行了确权登记，地号为N003C1、N003C2，该两块土地与第三人享有使用权的N003地块相邻。
经本院比对土地权属界线核定书附图并进行现场勘察，原告所有的N003C1、N003C2两块土地与第三人享有使用权的N003地块相邻，三块土地之间以及与相邻土地之间权属界线清晰，没有发生重合。
本院认为，本案的争议焦点是被告白沙县政府给第三人白沙农场颁发《国有土地使用证》是否证据确凿，适用法律、法规正确，符合法定程序。
首先，原国家土地管理局《土地登记规则》（[1995]国土[法]字第184号，1996年2月1日起实施）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”；第十条规定：”土地登记申请者申请土地使用权、所有权和土地他项权利登记，必须向土地管理部门提交下列文件资料：(一)土地登记申请书；(二)单位、法定代表人证明，个人身份证明或者户籍证明；(三)土地权属来源证明；(四)地上附着物权属证明。委托代理人申请土地登记的，还应当提交授权委托书和代理人资格身份证明”；第十五条第一款规定：”经土地管理部门审核，对认为符合登记要求的宗地予以公告”。本案中，自上世纪六十年代以来一直由第三人使用《国有土地使用证》项下土地种植橡胶，2004年全省进行农村土地确权登记发证工作时，第三人申请进行确权登记，被告依法受理第三人的申请后，被告依职权进行地籍调查、权属审核、注册登记等相关工作，经审批程序依法向第三人颁发了《国有土地使用证》。被告的颁证行为做到了证据确凿、事实清楚，适用法律、法规正确。但是，被告在进行地籍调查时，未通知相邻人即本案原告参与指界并在界线核定书上签名确认或者有相应的备注；被告在权属审核时有审查意见但未有审查人签章；被告也未能提交相应证据证明其对土地的审核结果进行了公告；因此，可以认定被告的颁证程序存在一定瑕疵。
其次，被告已经对原告所有的N003C1、N003C2两块土地进行了确权登记，因此原告认为被告单方将其集体土地（包括宅基地）全部划为国有归第三人使用没有事实根据；而且，原告所有的N003C1、N003C2两块土地与第三人享有使用权的N003地块之间以及与相邻土地之间权属界线清晰，没有发生重合，原告也未能提供证据证明被告给第三人颁发N003地块《国有土地使用证》侵害了其合法权益。
综上，被告白沙县政府颁发《国有土地使用证》的行政行为证据确凿，适用法律、法规正确，虽在程序上存在轻微违法，但无明显过错或重大瑕疵，且对原告什莫老村民小组的权利不产生实际影响，原告关于撤销被告给第三人白沙农场颁发的土地证的诉讼请求和理由均不能成立，本院不予支持。被告行政行为程序轻微违法，但对原告权利不产生实际影响的，如果撤销《国有土地使用证》将会损害第三人的合法权益，人民法院依法可以判决确认违法，但不撤销行政行为。
据此，依照《中华人民共和国行政诉讼法》第七十四条第一款第（二）项的规定，判决如下：
确认被告白沙黎族自治县人民政府于2004年11月18日给第三人白沙黎族自治县国营白沙农场颁发白国用（2004）第105号《国有土地使用证》的行政行为违法。
案件受理费人民币50元，由被告白沙黎族自治县人民政府负担。
如不服本判决，可在判决书送达之日起十五日内，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。
审判长符波
审判员张成信
审判员郝良存
二○一七年七月二十日
法官助理李治
书记员羊家莹
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