海南省高级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼行终20号
海南省高级人民法院
行政判决书
（2017）琼行终20号
上诉人（原审原告）钟求发，男，1965年8月7日出生，汉族，住海南省昌江黎族自治县。
上诉人（原审原告）汤兰姨，女，1964年12月4日出生,回族，住海南省昌江黎族自治县。
以上两位上诉人的共同委托代理人吴庭光，海南省昌江黎族自治县石碌法律事务所法律工作者。
被上诉人（原审被告）海南省昌江黎族自治县人民政府，住所地昌江县石碌镇昌江大道东侧。
法定代表人林安，该县县长。
委托代理人李德贤，海南省昌江黎族自治县国土资源局科员。
委托代理人唐发基，海南省昌江黎族自治县国土资源局科员。
原审第三人钟求三，男，1970年5月14日出生，汉族，住海南省昌江黎族自治县。
上诉人钟求发、汤兰姨因其诉被上诉人海南省昌江黎族自治县人民政府（以下简称昌江县政府）及原审第三人钟求三颁发集体土地使用证一案，不服海南省第二中级人民法院于2016年11月12日作出的（2016）琼97行初145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：2009年12月9日，昌江县政府向钟求三颁发昌集用（2009）第昌化0891号《集体土地使用证》（以下简称0891号土地证），该证项下土地使用权人为钟求三，土地所有权人为昌江黎族自治县昌化镇昌城村委会（以下简称昌城村委会），座落于昌化镇昌城村，地号为×××，图号为K05480095、K05470095，地类（用途）为农村宅基地，使用权类型为批准拨用宅基地，使用权面积为175平方米。
原审查明：钟求发、汤兰姨及钟求三均为昌江县昌化镇昌城村的村民，争议宅基地系昌城村委会的集体土地，1985年经村委会同意，钟求发的父母在该地上建房，但未曾居住过。1987年钟求发、汤兰姨结婚的时候以该房屋作为婚房使用，钟求发、汤兰姨现居住在争议地上的房屋内。钟求三也以该房屋作为婚房并居住过。2009年8月10日，钟求三申请将该宅基地登记在自己的名下。昌江县政府在审查钟求三的土地登记申请书后，通知钟求三进行指界，填写了《地籍调查表》《宗地界址点坐标表》，昌江县政府根据昌江黎族自治县昌化镇政府（以下简称昌化镇政府）、昌城村委会及村民小组出具的《土地权属证明》，经过对土地权属来源的审查和地籍调查，在将结果进行张榜公布原告未提出异议后，填写了《土地登记卡》和《土地归户卡》，于2009年12月2日对土地登记进行了审批，于2009年12月9日向钟求三颁发0891号土地证。
原审另查明：昌江县昌化镇昌城村委会在本案争议宅基地的附近已另行安排一块宅基地归钟求发、汤兰姨使用，钟求三在××县仅有本案争议的一块宅基地。本案争议地的相邻关系人张于胜、钟寿弟均认为其与争议地之间边界清楚且无争议。钟求发、钟求三的父亲于2004年去世，钟求发的母亲、大哥、姐姐、妹妹均放弃参加本案诉讼，放弃对涉案宅基地主张权利，同意将涉案的宅基地登记在钟求三名下。
原审认为，本案的争议焦点是昌江县政府颁发0891号土地证认定事实是否清楚，颁证程序是否合法。关于昌江县政府颁证认定事实是否清楚的问题，昌江县政府在颁证的过程中进行了地籍调查，并且在昌江县政府提交的《调查记事及张榜公布情况》中有相邻人张于胜及被告方调查员的签名确认，制作了宗地图和宗地界址坐标，而且有昌城村委会、昌化镇政府盖章确认的土地权属来源证明，能够证明钟求三对涉案的宅基地享有合法使用权，因此，昌江县政府颁证给钟求三认定事实清楚。钟求发、汤兰姨主张其在涉案宅基地上从1987年一直居住至今，因而拥有争议地的使用权，但其仅有昌城村委会出具的证明，而且在昌江县政府给钟求三颁证的过程中，钟求发、汤兰姨一直未提出异议，因此，对其该诉讼主张不予支持。关于昌江县政府颁证程序是否合法的问题，根据《土地登记规则》第六条的规定：”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）颁发或更换土地证书。”本案中，钟求三提交了土地登记申请书及土地权属来源证明，昌江县政府进行地籍调查并制作了宗地图和宗地界址坐标。昌江县政府在审查后对调查结果进行张榜公布无异议后，经土地登记审批同意并注册登记，为钟求三颁发0891号土地证，其颁证程序并无不当，依法应当予以支持。钟求发、汤兰姨主张其未在地籍调查等材料上签名确认，因此昌江县政府的颁证程序违法，而昌江县政府认为钟求发、汤兰姨没有充分的证据证明其与涉案宅基地存在权属关系，不需要通知其参与调查并签名。昌江县政府虽未依法通知相邻人进行指界，颁证程序存在瑕疵，但被诉颁证土地的相邻关系人张于胜、钟寿弟均认为其与争议地之间边界清楚且无争议，该程序瑕疵并未影响颁证结果的公正性，因此，昌江县政府的抗辩理由成立，对钟求发、汤兰姨的主张不予支持。此外，根据审理查明的事实，昌江县昌化镇昌城村委会在本案争议宅基地的附近已另行安排一块宅基地归钟求发、汤兰姨使用，钟求三在××县仅有本案争议的一块宅基地，依照《中华人民共和国土地管理法》第六十二条关于农村村民一户只能拥有一处宅基地的规定，钟求发、汤兰姨在已拥有一块宅基地的情况下，再行主张本案宅基地的权利，违反了上述法律规定，亦不应当予以支持。综上，昌江县政府的颁证行为认定事实清楚、程序合法，应当予以维持，钟求发、汤兰姨的诉讼请求没有事实根据和法律依据，依法应予驳回。依照《中华人民共和国行政诉讼法》第六十九条的规定，判决驳回钟求发、汤兰姨的诉讼请求，案件受理费人民币50元，由钟求发、汤兰姨负担。
上诉人钟求发、汤兰姨上诉称：原审认定事实不清，适用法律不当，判决驳回钟求发、汤兰姨的诉讼请求明显错误，应当予以撤销；昌江县政府给钟求三颁证的程序不合法，应当予以撤销。一、原审作出的钟求发、汤兰姨在昌江县政府给钟求三颁证的过程中一直未提出异议的事实认定错误。1986年，钟求发、汤兰姨的父母在涉案宅基地建房给钟求发、汤兰姨作为婚房，面积约120多平方米。钟求发、汤兰姨于1987年结婚后一直在该房屋居住生活育子，并先后在该房屋四周建起围墙、厨房、厕所、牛栏等，占地面积约为250多平方米，居住至今已有三十年，至二人提出上诉时止仍居住在涉案宅基地房屋内。期间从未有任何部门或相关人员到涉案宅基地进行现场测量或指界，也从未有任何村镇干部或者村民来告知关于涉案宅基地颁证过程的任何情况，钟求发、汤兰姨对昌江县政府给钟求三颁证的情况毫不知情，因此一直未对颁证行为提出异议。二、原审作出的昌城村委会在涉案宅基地附近另行安排一块宅基地归钟求发、汤兰姨使用，钟求三在昌城村仅有本案争议的一块宅基地的事实认定错误，原审适用法律不当。钟求发、汤兰姨的大儿子已到适婚年龄，在征求其外公汤玉恩同意的情况下，于2015年自筹资金在汤玉恩的宅基地上建房作为婚房，该房尚未居住亦未办理产权证。原审认定事实错误，并据此适用《中华人民共和国土地管理法》第六十二条相关规定不当。三、昌江县政府给钟求三颁证的程序不合法，应当予以撤销。原审作出的昌江县政府虽未依法通知相邻人进行指界，颁证程序存在瑕疵，但被诉颁证土地的相邻人张于胜、钟寿弟均认为其与争议地之间边界清楚且无争议，该程序瑕疵并未影响颁证结果的公正性的事实认定错误。指界是地籍调查中的一项内容，地籍调查是土地登记的法定程序，是土地登记的基础工作。地籍调查的内容有：1、权属调查。即对宗地权属来源及其所在的位置、界址、数量、用途和等级等情况调查。包括现场指界、标定宗地界址、绘制宗地草图、调查土地用途和等级、填写地籍调查表。2、地籍平面控制测量。3、地籍勘丈。目的是勘丈每宗土地权属界址点、线、位置、形状、数量等基本情况。4、绘制地籍图。其中权属调查中的现场指界是首要工作，如指界有差错指界影响地籍调查的准确性、土地证的权威性。现场指界如发生争议的，则地籍调查工作暂停，等争议处理完毕才能进入下一步工作。昌江县政府于2009年12月9日向钟求三颁发0891号土地证属于初始登记，根据法律的相关规定，现场指界、标定宗地界址和绘制宗地草图是办理宅基地使用权属登记必须的法定程序。本案中，昌江县政府提交的所有证据材料均无钟求发、汤兰姨的签名，也没有涉案宅基地的相邻人现场指界的材料，证据表明昌江县政府并没有到涉案宅基地进行现场指界、标定宗地界址和绘制宗地草图。虽然涉案宅基地的相邻人张于胜、钟寿弟事后均认为其与争议地之间边界清楚且无争议，但因昌江县政府在给钟求三颁证的过程中没有履行现场指界程序，最终导致在涉案宅基地房屋居住的钟求发、汤兰姨失去了提出异议的机会，昌江县政府由此颁证给钟求三的结果缺乏公正性。此外，涉案宅基地在未分家析产的情况下，昌城村委会和昌化镇政府给昌江黎族自治县国土环境资源局（以下简称昌江县国土局）出具的《土地权属证明》违反了相关法律规定。由此可见，昌江县政府给钟求三颁证的程序不合法，应当予以撤销。综上，原审判决认定事实不清，适用法律不当，请求：撤销一审判决，撤销昌江县政府给钟求三颁发的0891号土地证。
被上诉人昌江县政府未提交书面答辩意见，在询问中答辩称，二审答辩意见与一审答辩意见一致。一、昌江县政府发证程序合理合法。2009年昌江黎族自治县（以下简称昌江县）开展农村宅基地确权期间，国土部门对该地块进行了土地调查，经昌化镇政府、昌城村委会出具土地权源证明确认土地权属，并由相邻各方相互指界确定钟求三农村宅基地范围，其实际界址清楚，无争议。昌江县政府于2009年11月5日对土地登记审核结果进行公告，在公告期间，钟求发、汤兰姨未提出过异议。在公告期间无异议的情况下，根据海南省对农村宅基地面积的规定，昌江县政府向钟求三颁发0891号土地证符合法律规定。二、钟求发、汤兰姨所述与事实不符。昌江县国土部门调查登记、结果公告、张榜公布征询异议，于2009年昌江县政府向钟求三颁证至今，未见钟求发、汤兰姨提出过异议，昌化镇政府和村委会也未向发证机关反映过涉诉土地存在争议的事实。综上，昌江县政府颁发0891号土地证，认定事实清楚、证据确实充分、适用法律正确，钟求发、汤兰姨的主张缺乏事实根据，于法无据。综上，请求：驳回上诉，维持原判。
原审第三人钟求三未提交书面意见，在询问中口头述称，钟求发、汤兰姨上诉称其在涉案宅基地房屋内居住了三十年，二人应该知道昌江县政府给钟求三地籍调查指界等颁证相关事宜，有昌城村委会和昌江县国土局的工作人员为证。昌江县政府给钟求三颁证合理合法。综上，请求：驳回上诉，维持原判。
本院二审期间，上诉人提交《地基证》以证实原判关于”昌江县昌化镇昌城村委会在本案争议宅基地的附近已另行安排一块宅基地归原告使用”的事实认定错误，被上诉人及第三人均对该证据的真实性等提出异议。本院认为，该证据目的在于证实案外宅基地的来源及使用权人，与本案不具有关联性，对该证据不予采纳。
本院二审查明：昌江县政府在审查钟求三的土地登记申请书后，通知钟求三进行指界，填写了《地籍调查表》《宗地界址点坐标表》，但并未通知涉案宅基地相邻人等参与现场指界。昌江县政府提交的证据中，《土地登记申请书》《指界通知书回执表》《调查记事及张榜公布情况》《土地登记审批表》四份表格中的日期均有明显的改动。原审判决认定”昌江县昌化镇昌城村委会在本案争议宅基地的附近已另行安排一块宅基地归原告使用”，本院勘查现场后查明，此案外宅基地地上房屋为2015年建造，宅基地及地上房屋均未登记在钟求发、汤兰姨名下，原审判决认定昌城村委会已另行安排一处宅基地给钟求发、汤兰姨使用缺乏相应证据支持，本院不予确认。
本院经审理查明的其他事实与原审判决认定的事实一致，本院予以确认。
本院认为，本案的争议焦点为昌江县政府给钟求三颁发0891号土地证认定事实是否清楚，颁证程序是否合法。本案中，涉案宅基地系由昌城村委会安排给钟求发、钟求三的父母使用，地上房屋由钟求发、钟求三的父母建造，并非由昌城村委会安排给钟求三使用。从钟求发、汤兰姨及昌江县政府提交的证据来看，钟求发、钟求三的父亲在2004年去世前并未就涉案宅基地地上房屋进行分家析产。依据《土地登记办法》第九条的规定：”申请人申请土地登记，应当根据不同的登记事项提交下列材料：（一）土地登记申请书；（二）申请人身份证明材料；（三）土地权属来源证明；（四）地籍调查表、宗地图及宗地界址坐标；（五）地上附着物权属证明；......”。钟求三于2009年申请土地登记时并未提交宅基地地上房屋权属证明，涉案宅基地及地上房屋权源不明。昌江县政府对涉案土地及地上附着物权属未能正确履行审核之责，在本案上诉人钟求发、汤兰姨仍在使用涉案地上房屋、涉案宅基地及地上房屋权属不明情形下，径行受理钟求三的申请而将涉案宅基地登记在其名下，属认定事实不清，证据不足。《海南省土地权属确定与争议处理条例》第三十条规定：”土地行政主管部门在确定土地权属时应当查验有关权属证明和其他有关材料。对未颁发过权属证书的土地进行确权时，土地行政主管部门应当实地核定土地权属界线。土地行政主管部门进行实地核定土地权属界线时，应当在7个工作日前，将核定界线通知书送达申请人和相邻人。......申请人和相邻人应当按照要求到场参与指界；因故不能到场的，可以委托代理人到场参与指界，并出具授权委托书；委托书应当载明委托的事项、权限和时间等内容；申请人无正当理由不到场指界的，中止指界......”，昌江县政府在收到钟求三的《土地登记申请书》后，仅通知钟求三进行指界，未通知涉案宅基地相邻人等参与现场指界，未确认涉案宅基地权属来源，即向第三人颁发土地证，因此，昌江县政府颁发0891号土地证的行为程序违法。原审判决认定”昌江县政府虽未依法通知相邻人进行指界，颁证程序存在瑕疵，但被诉颁证土地的相邻关系人张于胜、钟寿弟均认为其与争议地之间边界清楚且无争议，该程序并未影响颁证结果的公正性”，与事实不符，原审调查中相邻人确认与争议地之间边界清楚且无争议并不能代替昌江县政府的地籍调查与现场指界。
综上，昌江县政府颁发0891号土地证认定事实不清，证据不足，颁证程序违法。原审判决认定事实不清，适用法律错误，应予撤销。依照《中华人民共和国行政诉讼法》第七十条第（一）项、第（三）项及第八十九条第一款第（二）项、第三款之规定，判决如下：
一、撤销海南省第二中级人民法院（2016）琼97行初145号行政判决；
二、撤销昌江黎族自治县人民政府颁发的昌集用（2009）第昌化0891号《集体土地使用证》。
一审案件受理费50元、二审案件受理费50元，均由昌江黎族自治县人民政府负担。
本判决为终审判决。
nq4lgibktsgks2j9zd
审判长郑怀全
审判员王华
审判员朱望锋
法官助理夏丽君
书记员颜恺
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