海南省高级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼行终102号
上诉人许为荣，男，1956年5月15日出生，黎族，现住儋州市。
委托代理人周波煌，儋州市为民众法律事务所律师。
被上诉人儋州市人民政府。住所地儋州市那大镇中兴大街市直机关办公大楼。
法定代表人朱洪武，该市市长。
委托代理人符定福，海南为先律师事务所律师。
原审第三人许志贤，男，1963年11月10日出生，汉族。
委托代理人许保和，男，1990年9月7日出生，汉族，系许志贤之子。
上诉人许为荣不服被上诉人儋州市人民政府（简称儋州市政府）及原审第三人许志贤土地行政登记一案，不服海南省第二中级人民法院作出的（2016）琼97行初327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。本案现已审理终结。
本案被诉行政行为：儋州市政府于2010年12月31日向许志贤颁发儋集用（2010）第04064号《集体土地使用证》（简称04064号土地证）。该证记载，土地使用权人：许志贤。土地所有权人：三都镇南滩村许宅经济合作社。地类（用途）：农村宅基地。使用权类型：批准拨用宅基地。使用权面积：174.87平方米。
原审查明,本案争议地位于儋州市××镇许宅经济合作社，面积为174.87平方米。许为荣主张该地上原有三间房屋，1945年以前，许为荣的父亲许文书（已故）在此居住生活。1945年之后，许文书离开许宅村，其生前户籍已不在许宅经济社。许为荣的户籍亦不在许宅经济社。许文书原居住的房屋年久失修已经倒塌，许志贤在1990年初期找到许文书，在征得其同意后将倒塌的房屋进行重建并管理使用至今。2010年5月12日，许志贤向儋州市政府提交《土地登记申请书》，同日，许宅经济社出具《土地权属来源证明》，证实许志贤已依法取得本案争议地，儋州市三都镇南滩村民委员会和儋州市三都镇人民政府亦在该《土地权属来源证明》上签署了意见。儋州市政府经户籍调查、地籍调查、四至相邻人指界签名、制作宗地图、公告征询异议和审批等程序，于2010年12月31日向许志贤颁发了04064号土地证。现许为荣以本案争议地系其祖宅的土地，其对该地享有合法的继承权，儋州市政府的颁证行为错误为由提起行政诉讼，请求判决撤销04064号土地证。
原审认为，一、关于被诉颁证行为的土地权属来源是否清楚的问题。本案中，许志贤申请涉案土地使用权登记时，依照《土地登记规则》第十条第一款的规定提交了《土地登记申请书》、身份证、户籍证明和《土地权属来源证明》等材料，许志贤取得本案争议地使用权的权属来源清楚合法，被诉颁证行为认定事实的主要证据充足。现争议地上的房屋由许志贤修建，依照《确定土地所有权和使用权的若干规定》第五十二条”空闲或房屋坍塌、拆除两年以上未恢复使用的宅基地，不确定土地使用权。已经确定使用权的，由集体报经县级人民政府批准，注销其土地登记，土地由集体收回”和《海南省土地权属确定与争议处理条例》第二十三条”非农业户口居民原有或者合法继承的农村房屋，房屋产权没有变化的，可以依法确定其房屋宅基地的集体土地建设用地使用权。房屋拆除后不再批准重建的，土地使用权由农村集体经济组织收回”的规定，争议地上的房屋产权已经发生变化。由于许为荣不是许宅经济社的村民，故其无法凭借现争议地上的房屋取得本案争议地的使用权。因此，许为荣关于其对本案争议地享有合法继承权的主张没有法律依据，不予支持。二、关于被诉颁证行为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，在许志贤向儋州市政府提出土地使用权登记发证申请后，儋州市政府经户籍调查、地籍调查、四至相邻人指界签名、制作宗地图、公告征询异议和审批等程序，于2010年12月31日向许志贤颁发了04064号土地证，程序合法。综上，儋州市政府向许志贤颁发04064号土地证的主要证据充足，符合法定程序。依照《中华人民共和国行政诉讼法》第六十九条的规定，判决驳回许为荣的诉讼请求。案件受理费人民币50元，由许为荣负担。
上诉人许为荣上诉称，一、原审判决认定事实错误，违法采信证据。（一）许文书原居住的房屋并未倒塌，许志贤也没有进行重建。许文书原居住的房屋共三间，一间大主宅及两间小房，中间有院子，占地面积174.87平方米。房子并非全部倒塌，倒塌的只是一间小房子，大主宅及另一间小房至今仍然保存完好，许志贤于2007年前后入住后做了简单修缮。（二）即使一间小房倒塌重建，其余的一间大宅、一间小房及院子仍然存在，许为荣依法享有继承权。（三）将倒塌的房屋进行重建是否经得许文书的同意，没有直接合法有效的证据予以佐证。许文书于2004年逝世，其生前并没有说过同意许志贤重建倒塌的一间小房。祖屋一直由村里的姑姑看管，并且每隔十年村里搞祭祖活动时，许为荣都回村里，许文书及在村里的姑姑从未提过同意许志贤重建小房。（四）许志贤提供的《意见书》的真实性及其合法来源无法得到证实，且该《意见书》不能证实许文书原居住的三间房屋全部倒塌。二、儋州市政府的颁证程序违法。儋州市政府明知颁证土地上房屋的权属来源没有调查清楚，仅凭《土地权属来源证明》就为许志贤办理了土地证，剥夺了房屋所有权人的合法权益。三、依据《海南省土地权属确定与争议处理条例》第二十三条规定：”非农业户口居民原有或者合法继承的农村房屋，房屋产权没有变化的，可以依法确定其房屋宅基地的集体土地建设用地使用权。”许文书原有的三间房屋，有两间至今保存完好，并没有倒塌，房屋的产权没有发生变化，许为荣享有合法的继承权。综上，原审判决认定事实不清，适用法律错误。请求撤销原判，撤销04064号土地证。
被上诉人儋州市政府答辩称，本案争议地是集体土地，许为荣不是该农村集体经济组织成员，其以祖屋主张权属，而争议地上的房屋已全部改建，宅基地权利不能继承。儋州市政府的颁证行为认定事实清楚，程序合法。综上，原审判决认定事实清楚，适用法律正确。请求驳回上诉，维持原判。
原审第三人许志贤陈述称，许文书原来的房子全部倒塌。房子是一大一小两间，不是许为荣所说的三间。上世纪90年代初，许志贤征得许文书的同意后重建，许文书签下了一份《意见书》。许为荣从其父亲去世后从没有回过许宅村。综上，原审判决认定事实清楚，适用法律正确。请求驳回上诉，维持原判。
在本院审理过程中，许为荣向本院提交一张照片，证明许文书原有房屋并未全部倒塌。本院认为，该证据所证明的事实形成于本案诉讼之前，许为荣在第一审程序中无正当事由未提供，依据《最高人民法院关于行政诉讼证据若干问题的规定》第七条第二款的规定，本院对该证据不予接纳。
二审经审理查明，一、颁证土地《土地权属来源证明》记载，土地来源类型：依法取得。土地使用现状：已建房。本院认为，许志贤对颁证土地如何取得的方式不清，地上已建房屋的权属是否经过调查、是否清楚无争议，并不明确。二、2010年8月10日，儋州市三都镇南滩村许宅经济社出具《证明》，该《证明》记载：”许文书是三都镇南滩村委会许宅村人，现在此村仍有房屋，””房屋所有权：与许志贤（存在）流转或维修纠纷”。2010年8月26日，儋州市三都镇南滩村委会在该《证明》上盖章确认并签署”以上情况属实”的意见。2016年5月26日，洋浦经济开发区三都区办事处出具的《关于许为荣老宅与许志贤宅基地证存在争议事项答复意见书》，认为”要以客观事实为依据确定权属”。本院认为，儋州市三都镇南滩村许宅经济社出具的《证明》和洋浦经济开发区三都区办事处出具《关于许为荣老宅与许志贤宅基地证存在争议事项答复意见书》，可以证明颁证土地在颁证之前，许为荣和许志贤就地上房屋所有权已经存在权属争议且未得到解决。三、经现场勘查，许文书原有房屋是否倒塌不具备居住条件、许志贤对许文书原有房屋是进行局部修缮还是整体结构性拆除重建，依据现有证据不能得出确定的结论。
二审查明的其它事实与原审判决查明的事实一致，本院予以确认。
本院认为，《土地登记规则》第十条第一款规定：”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。”在本案颁证过程中，许志贤并未依法提交《地上附着物权属证明》，颁证土地地上房屋所有权不明且在颁证之前存在权属争议，许文书原有房屋是否倒塌不具备居住条件、许志贤对许文书原有房屋是进行局部修缮还是整体结构性拆除重建，依据现有证据不能得出确定的结论。在此情况下，儋州市政府向许志贤颁发04064号土地证，认定事实不清。综上，儋州市政府向许志贤颁发04064号土地证的行政行为，认定事实不清，适用法律错误，应予撤销。许为荣的上诉请求和理由成立，应予支持。原审判决认定事实不清，适用法律错误，处理结果不当，应予撤销。依照《中华人民共和国行政诉讼法》第八十九条第一款第（二）项、第八十九条第三款之规定，判决如下：
一、撤销海南省第二中级人民法院（2016）琼97行初327号行政判决；
二、撤销儋州市人民政府于2010年12月31日向许志贤颁发的儋集用（2010）第04064号《集体土地使用证》。
一、二审案件受理费各50元共计100元，由儋州市人民政府负担。
本判决为终审判决。
审判长聂海波
审判员王华
审判员郑怀全
书记员井泉旺
附：本判决适用的相关法律依据
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一、《中华人民共和国民事诉讼法》第二百三十九条：申请执行的期间为二年。申请执行时效的中止、中断，适用法律有关诉讼时效中止、中断的规定。
前款规定的期间，从法律文书规定履行期���的最后一日起计算；法律文书规定分期履行的，从规定的每次履行期间的最后一日起计算；法律文书未规定履行期间的，从法律文书生效之日起计算。
二、赣县人民法院标的款账号： 户名：赣县人民法院 账号：03×××52 开户行：赣县农行赣东分理处 三、赣州市中级人民法院诉讼费账号：
户名：江西省赣州市中级人民法院 账号：99×××88
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债务应当清偿。暂时无力偿还的，经债权人同意或者人民法院裁决，可以由债务人分期偿还。有能力偿还拒不偿还的，由人民法院判决强制偿还。
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当事人一方不履行合同义务或者履行合同义务不符合约定的，应当承担继续履行、采取补救措施或者赔偿损失等违约责任。
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