海南省高级人民法院
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（2017）琼行终190号
海南省高级人民法院
行政判决书
（2017）琼行终190号
上诉人（原审第三人）刘顺杰，男，1985年3月12日出生，黎族，住乐东黎族自治县。
委托代理人黄进，海南言必信律师事务所律师。
被上诉人（原审原告）邢万福，男，1943年8月27日出生，汉族，住乐东黎族自治县。
委托代理人黎昌豪，乐东黎族自治县冲坡法律事务所法律工作者。
原审被告乐东黎族自治县人民政府，住所地海南省乐东黎族自治县抱由镇。
法定代表人李永群，该县县长。
委托代理人高芳亮，该县政府法制办公室工作人员。
原审第三人乐东黎族自治县千家镇汉小村委会第四村民小组，住所地乐东黎族自治县千家镇汉小村。
负责人刘勇，该组组长。
委托代理人李玉妃，女，黎族，1968年4月8日出生，住乐东黎族自治县千家镇汉小村委会脚艾村。
上诉人刘顺杰因与被上诉人邢万福及原审被告乐东黎族自治县人民政府（以下简称乐东县政府）、原审第三人乐东黎族自治县千家镇汉小村委会第四村民小组（以下简称第四村民小组）林权行政登记一案，不服海南省第二中级人民法院作出的（2016）琼97行初392号行政判决，向本院提起上诉。本院依法组成合议庭，对本案进行了公开审理，本案现已审理终结。
本案被诉行政行为：乐东县政府于2010年6月28日向刘国成颁发了乐府林证字（2010）第012965号《林权证》（以下简称012965号林权证）。该证NO1《森林、林木、林地状况登记表》（以下简称证NO1表）记载，林地所有权权利人为千家镇汉小村第三经济合作社；林地使用权权利人为刘国成；森林或林木所有权权利人为刘国成；森林或林木使用权权利人为刘国成；坐落于××县委会；小地名为只扳坡；面积为32亩；主要树种为龙眼。该证NO2《森林、林木、林地状况登记表》（以下简称证NO2表）面积为18.77亩，林地使用期为30年，其他登记权项同证NO1表。邢万福认为其对证NO1表项下32亩林地享有林权，对该颁证行为不服，���求撤销乐东县政府给刘国成颁发的012965号林权证项下证NO1表的登记内容。
原审查明，刘国成与刘顺杰系父子关系，刘国成现已去世。千家镇汉小村第三经济合作社现更名为第四村小组。2010年6月28日，乐东县政府向刘国成颁发012965号林权证，该证下有两块林地，一块18.77亩，另一块32亩，规划地类为规划内商品林地，小地名均为”只扳坡”，林地所有权人均登记为千家镇汉小村第三经济合作社，林地使用权人均登记为刘国成，林木所有权和使用权人均登记为刘国成。2015年11月9日，邢万福向乐东黎��自治县林业局申请撤销颁发给刘国成的林权证。乐东县政府于2016年5月11日作出12号注销决定，注销乐东县政府于2010年6月28日颁发的012965号林权证。原审法院于2016年9月12日作出（2016）琼97行初167号行政判决，撤销乐东县政府作出的12号注销决定。原审另查明，012965号林权证项下林地的所有权属第四村小组，涉案土地上的龙眼树是邢万福种植，邢万福为乐东黎族自治县莺歌海镇新兴居民委员会居民。
原审认为,《林权证》包含四项基本权利，即林地所有权、林地使用权、森林或林木所有权以及森林或林木使用权。《海南经济特区林地管理条例》（2009年）第十三条规定，符合下列条件的，登记机关应当自受理申请之日起3个月内予以登记：（一）申请登记的林地位置、四至界限、面积等数据准确；（二）林地权属证明材料完备、合法有效；（三）林地权属无争议；（四）附图中标明的界桩、地物标志与实地相符合。对不符合前款规定条件的，登记机关不予登记，并以书面形式向申请人告知不予登记的理由。依此规定，登记机关办理林权登记的条件之一是林地权属无争议。在本案中，012965号林权证项下32亩”只扳坡”林地上的龙眼树是由邢万福种植，并由邢万福管理使用，各方当事人对该事实也予以确认。故乐东县政府向刘国成颁发012965号林权证时，将涉案林地的龙眼树的使用权和所有权均登记为刘国成，属颁证事实不清、证据不足，且邢万福与刘顺杰对涉案林地���使用权也各执一词。因此，乐东县政府颁发的012965号林权证中NO1《森林、林木、林地状况登记表》的登记内容不符合林地权属无争议的登记条件。遂依照《中华人民共和国行政诉讼法》第七十条第（一）项的规定，判决撤销乐东县政府于2010年6月28日颁发的乐府林证字（2010）第012965号《林权证》中NO1《森林、林木、林地状况登记表》的登记内容。案件受理费人民币50元，由乐东县政府负担。
上诉人刘顺杰上诉称，一、邢万福提起本案诉讼超过起诉期限，依法应裁定驳回起诉。乐东县政府于2010年6月28日颁发012965号林权证��，全县各乡镇统一部署颁发林权证，各村及小组依次办理，这是众所周知的事实。邢万福从1999年以来一直经营涉案土地，于2016年才提起诉讼，超过起诉期限。二、涉案林地所有权依法属于第四村民小组，原审认定涉案林地存在权属争议错误。刘顺杰与邢万福对林地上附着物归属并无争议，不能以林木所有权否认林地承包经营权。三、根据《中华人民共和国农村土地承包法》《海南经济特区林地管理条例》的相关规定，本案林地承包与土地承包具有相同的法律性质，原审判决适用法律错误，否定了刘顺杰对涉案林地的承包经营权。四、邢万福是城镇居民，无权与刘顺杰争夺涉案林地承包经营权，双方之间是林地承包经营权流转法律关系，不影响刘顺杰对涉案林地依法享有的占有、使用、收益的权利。综上，请求撤销原判，支持刘顺杰的诉讼请求。
被上诉人邢万福称答辩称，一、本案诉讼未超过起诉期限。依照《最高人民法院关于执行〈中华人民共和国行政诉讼法〉若干问题的解释》第四十一条第一款规定，行政机关作出具体行政行为时，未告知公民、法人或者其他组织诉权或者起诉期限的，起诉期限从公民、法人或者其他组织知道或者应当知道诉权或者起诉期限之日起计算，但从知道或者应当知道具体行政行为内容之日起最长不得超过２年。本案中，邢万福于2015年提起与本案关联的民事诉讼时才知道本案颁证行为，并无证据证明邢万福在2010年6月知道本案颁证行为，故邢万福于2016年提起本案诉讼并未超过起诉期限。二、乐东县政府在事实不清、证据不足的情况下，为刘国成颁发012965号林权证是违法的。故原审判决认定事实清楚，适用法律正确，请求二审法院驳回上诉，维持原判。
原审第三人第四村民小组述称，经村委会、千家镇人民政府同意，该村民小组将涉案林地发包给刘国成使用，乐东县政府经审批等合法程序给刘国成颁发012965号林权证。邢万福不是本村村民，无权使用该林地，不是该证的权利人。请求二审法院撤销原判，支持刘顺杰的诉讼请求。
原审被告乐东县政府经本院依法通知未参加本案询问，亦未向本院书面陈述意见。
本院二审审理查明，1999年，刘国成与邢万福达成口头协议，双方就涉案50.77亩土地进行合作开发经营，但协议内容无书面证据予以证实。邢万福于1999年在涉案土地上开荒种植芒果，于2003年改种龙眼树并经营管理至今。
二审查明的其他事实与原审认定的事实一致，本院予以确认。
本院认为，本案的争议焦点为：一、邢万福提起本案诉讼是否超过起诉期限；二、乐东县政府给刘国成颁发012965号林权证是否合法。
一、关于邢万福提起本案诉讼是否超过起诉期限的问题。《最高人民法院关于执行〈中华人民共和国行政诉讼法〉若干问题的解释》第四十一条第一款规定：”行政机关作出具体行政行为时，未告知公民、法人或者其他组织诉权或者起诉期限的，起诉期限从公民、法人或者其他组织知道或者应当知道诉权或者起诉期限之日起计算，但从知道或者应当知道具体行政行为内容之日起最长不得超过２年。”本案中，邢万福于2015年提起本案关联民事诉讼时才得知被诉颁证行为，刘顺杰未提供证据证明邢万福于2010年6月份已知道该颁证行为，邢万福于2016年12月21日提起本案诉讼并未超过前述”2年”的起诉期限。因此，刘顺杰主张邢万福提起本案诉讼超过起诉期限没有事实根据和法律依据，本院不予支持。
关于乐东县政府给刘国成颁发012965号林权证是否合法的问题。根据本案查明的事实，涉案50.77亩林地为第四村民小组集体所有，由刘国成承包经营。邢万福主张其与刘国成口头约定，由邢万福开荒种植涉案林地，其中32亩林地归邢万福使用经营收益，其余18.77亩林地归刘国成使用经营收益，但无书面证据证明双方就涉案林地合作开发面积、合作期限、林地使用权、林木所有权及林木使用权归属���及双方权利义务等达成一致意见。邢万福于1999年开始对涉案土地进行开荒种植果树，已实际经营十几年，刘顺杰对邢万福在涉案土地上开荒种植林木的事实无异议，但双方对012965号林权证中证NO1表项下登记内容的合法性各执一词。依据《林木和林地权属登记管理办法》第十一条第（三）项之规定，林权登记应无权属争议，乐东县政府在涉案32亩林地使用权、林木所有权及林木使用权归属无法确认的情况下给刘国成颁发012965号林权证NO1表的登记内容认定事实不清，主要证据不足，依法应予撤销。
综上，原审判决认定事实���楚，适用法律正确，判决结果并无不当，依法予以维持。上诉人刘顺杰的上诉请求与理由不成立，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）项的规定，判决如下：
驳回上诉，维持原判。
二审案件受理费50元由上诉人刘顺杰负担。
本判决为终审判决。
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审判长朱望锋
审判员吴天月
审判员聂海波
书记员陈欣欣
《中华人民共和国行政诉讼法》
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