海南省高级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼行终693号
海南省高级人民法院
行政裁定书
（2017）琼行终693号
上诉人（原审原告）海口市美兰区演丰镇美兰村委会谭康仔村民小组。
法定代表人吴挺雄，组长。
上诉人（原审原告）海口市美兰区演丰镇美兰村委会村内仔村民小组。
法定代表人吴明壮，组长。
上诉人（原审原告）海口市美兰区演丰镇美兰村委会美兰下村民小组。
法定代表人卢章源，组长。
上列三上诉人的共同委托代理人唐晓烨，海南天皓律师事务所律师。
上列三上诉人的共同委托代理人吕浩，海南天浩律师事务所律师。
被上诉人（原审被告）海口市人民政府，住所地海口市长滨二路市政府第二办公区。
法定代表人倪强，市长。
委托代理人郭刻盛，海南瑞来律师事务所律师。
委托代理人李乐，海口市人民政府法律顾问室法律顾问。
原审第三人海南中惠房地产开发有限公司，住所地海口市美兰区演丰镇人民政府办公大楼5楼501房。
法定代表人高志文，总经理。
委托代理人李超鹏，海南中惠房地产开发有限公司法律事务部法务专员。
上诉人海口市美兰区演丰镇美兰村委会谭康仔村民小组、海口市美兰区演丰镇美兰村委会村内仔村民小组、海口市美兰区演丰镇美兰村委会美兰下村民小组（以下简称谭康仔等三村民小组）因其诉被上诉人海口市人民政府（以下简称市政府）及原审第三人海南中惠房地产开发有限公司（以下简称中惠公司）土地行政登记一案，不服海南省海口市中级人民法院（2016）琼01行初301号行政裁定，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：市政府向中惠公司颁发的海口市国用（2008）第002369号《国有土地使用证》（以下简称002369号证）。谭康仔等三村民小组不服，起诉请求撤销该证。
原审查明，本案所诉土地位于海口市演丰镇美兰墟，面积66667.35平方米，土地用途为工业用地，四至为东至空地，南至空地，西至中惠公司，北至中惠公司。涉案土地原为琼山穗琼联营民政开发公司（以下简称穗琼公司）申请建设海南国际药业城项目用地的一部分，原登记在穗琼公司名下，证号为琼山籍国用（2002）字第09-0056号国有土地使用证（以下简称09-0056号证）。因借款纠纷，海口市中级人民法院（2005）海中法执字第115-3号民事裁定，将涉案宗地裁定给海南金元投资控股有限公司（以下简称金元公司）。2007年12月20日，金元公司、海南承海实业投资有限公司（以下简称承海公司）及海口市美兰区演丰镇人民政府达成和解协议。2007年12月29日，承海公司与中惠公司签订《土地使用权证转让合同》，约定以使用权入股的方式转让涉案土地使用权。经向市政府的土地管理部门提出土地使用权转受让申请，国土部门进行地籍调查、权属审核等后，注销了09-0056号证，于2008年4月11日向第三人颁发了涉案002369号证。
原审认为，谭康仔等三村民小组所诉市政府向中惠公司颁发涉案002369号证项下土地使用权，原属穗琼公司所有，原颁发证号为09-0056号证，土地用途为工业用地。也就是说，涉案002369号证项下土地在变更登记之前即属工业用地，而非谭康仔等三村民小组所称属其集体用地。因此，市政府向中惠公司颁发涉案002369号证的行政行为，与谭康仔等三村民小组并不存在利害关系。谭康仔等三村民小组起诉要求撤销市政府向中惠公司颁发的002369号证，不符合法定起诉条件。市政府辩解意见，于法有据，原审法院予以采纳。依照《中华人民共和国行政诉讼法》第四十九条第（一）项、《最高人民法院关于适用〈中华人民共和国行政诉讼法〉若干问题的解释》第三条第一款第（一）项之规定，裁定驳回谭康仔等三村民小组的起诉。
上诉人谭康仔等三村民小组上诉称，一、原审裁定关于”涉案土地证项下土地并非原告所属的集体用地，故颁证行为与原告不存在利害关系”的事实认定，存在明显错误。涉案土地系谭康仔等三村民小组的集体土地；1998年，市政府未告知谭康仔等三村民小组、未支付任何征地补偿费用、未办理任何征收手续的情况下，私自将该地征为国有土地，并为穗琼公司办理09-0056号证。此后，谭康仔等三村民小组发现该地被办理国有土地使用证并申请复议后，市政府在复议期间，无端将原证注销，另行颁发了本案被诉土地证，复议机关以09-0056号证被注销为由，终止了复议程序。琼土海环资函[1998]98号复函、征地出让审批表等证据证实了涉案土地来源于谭康仔等三村民小组的集体土地，政府违法征收和出让该地并颁发国有土地证。行政复议中止通知书、终止决定书等证据证实了市政府注销了原违法颁发的土地证，重新办理新证，并由此导致复议程序的终止。前述事实可见，市政府颁证行为是由违法征地和出让土地一系列错误行政行为所形成的一个最终行政行为，导致谭康仔等三村民小组的集体土地在不知情的情况下变为国有土地。另外，市政府在明知土地证正在复议阶段，权属存在争议的情况下，颁发被诉土地证，导致复议阶段终止，谭康仔等三村民小组维权受阻。因此，被诉发证行为，明显与谭康仔等三村民小组存在利害关系。二、原审裁定驳回谭康仔等三村民小组的起诉存在明显错误，应依法撤销改判。如上所述，被诉土地证与谭康仔等三村民小组存在利害关系是不争事实，原审裁定不顾众多村民的合法权益，草率驳回起诉，显然与案件基本事实及法律规定不符。综上，请求：1.撤销原审裁定；2.撤销市政府向中惠公司颁发的002369号证。
被上诉人市政府答辩称，《中华人民共和国物权法》第九条规定，不动产物权的设立、变更、转让和消灭，经依法登记，发生效力。涉案土地于原登记在穗琼公司名下，证号为09-0056号证。后因金元公司、海南睿丰光纤光缆有限公司、承海公司借款合同纠纷一案，海口市中级人民法院于2006年11月以（2005）海中法执字第115-3号民事裁定书，裁定将承海公司所有的位于琼山区美兰墟的398552.65平方米的土地使用权[土地证号为：琼山籍国用（2002）09-0056号、（2002）09-0056号、（2002）09-0056号]、位于美兰国际药城的24282.3**平方米土地使用权[土地证号为：琼山籍国用（1999）09-0024号]以第三次拍卖的保留价32**万元抵偿给申请执行人金元公司。随后于2007年12月20日，金元公司、承海公司及海口市美兰区演丰镇人民政府达成《和解协议》，约定由海口市美兰区演丰镇人民政府替承海公司向金元公司偿还债务后，金元公司实际上将涉案土地退还给承海公司。2007年12月29日承海公司与中惠公司签订《土地使用权转让合同》，约定将涉案地块使用权转让给中惠公司，并办理了本案诉争的002369号证。从前述事实看，涉案土地被征收后出让给穗琼公司，并办理了土地登记，后经司法裁定该金元公司，后再退还给承海公司，最终由承海公司将土地转让给中惠公司。涉案土地物权经过一系列变更，每个变更行为都产生相应的物权效力，且每一个变更登记行为均分别属于一个独立的行政行为。本案谭康仔等三村民小组针对最后的一个变更登记提起诉讼，该变更登记与谭康仔等三村民小组并无直接关系。事实上，与谭康仔等三村民小组之间存在法律关系的是土地征收行为，但是，在该征收行为完成后长达二十余年的时间里，谭康仔等三村民小组并未提出异议。如果谭康仔等三村民小组认为土地征收行为侵害其合法权利，其应当对征收行为依法提出权利救济。综上，本案被诉行为与谭康仔等三村民小组之间不存在利害关系，原审裁定认定事实清楚，法律适用正确，应依法予以维持。
原审第三人中惠公司述称，中惠公司受让的是国有土地，是依法受让的，办理了权属登记，颁证行为合法。因此，原审裁定合法，应予维持。
本院二审经审理查明，涉案土地系原琼山市人民政府于1998年为海南国际药业城南药种植加工基地项目而征收的1447.388亩土地中的一部分，并于2002年颁发09-0056号证，将土地登记至穗琼公司名下。谭康仔等三村民小组于2016年8月29日向原审法院提起诉讼，请求撤销上述征地行为。原审法院于2016年11月30日作出（2016）琼01行初304号行政裁定，以超过起诉期限为由，裁定驳回了谭康仔等三村民小组的起诉。在谭康仔等三村民小组就上述304号行政裁定提起上诉后，本院于2017年7月4日作出（2017）琼行终696号行政裁定，维持了该行政裁定。
二审查明的其他事实与原审认定事实一致，本院予以确认。
本院认为，谭康仔等三村民小组提起本案诉讼的根源在于不服市政府的征收行为。征收行为为独立的行政行为，谭康仔等三村民小组另行起诉征收行为的案件已被原审法院裁定驳回起诉，本院二审经审理已裁定驳回上诉、维持原裁定。涉案土地被市政府征收为国有并出让后，又进行了几次流转，目前土地使用权为中惠公司拥有。谭康仔等三村民小组以涉案土地仍为集体土地为由主张其与被诉土地证存在利害关系，不能成立。原审认定谭康仔等三村民小组与本案被诉002369号证不具有法律上的利害关系，进而裁定驳回起诉并无不当。综上，谭康仔等三村民小组的上诉请求缺乏事实根据和法律依据，依法应予驳回。原审裁定认定事实清楚，适用法律正确，依法应予维持。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，裁定如下：
驳回上诉，维持原裁定。
本裁定为终审裁定。
审判长麻红丽
审判员王华
审判员黄胜敏
二○一七年七月五日
书记员王洪玉
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