海南省高级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼行终36号
上诉人（原审原告）：海南陵水南丽开发建设公司。住所地：海南省陵水黎族自治县陵城镇。
法定代表人：王春河，该公司总经理。
委托诉讼代理人：夏云枫，北京市瑞都律师事务所律师。
被上诉人（原审被告）：陵水黎族自治县人民政府。住所地：海南省陵水黎族自治县建设路***号。
法定代表人：杨文平，该县县长。
委托诉讼代理人：王丹松，海南万理律师事务所律师。
委托诉讼代理人：彭小熬，陵水黎族自治县国土资源局工作人员。
上诉人海南陵水南丽开发建设公司（以下简称南丽公司）因与被上诉人陵水黎族自治县人民政府（以下简称陵水县政府）收回国有土地使用权纠纷一案，不服海南省第一中级人民法院（2016）琼96行初74号行政裁定，向本院提起上诉。本院于2017年1月14日立案后依法组成合议庭对本案进行了审理，现已审理终结。
南丽公司向原审法院诉称，陵水县政府作出陵府〔2002〕108号《陵水黎族自治县人民政府关于依法无偿收回海南陵水南丽开发建设公司国有土地使用权的决定》（以下简称108号决定）及《关于限期申报闲置建设用地的公告》，但未告知南丽公司，以致南丽公司未能及时行使权利，陵水县政府作出108号决定程序违法，应予撤销。南丽公司已付清了涉案土地的出让款，但政府至今未就征地补偿、坟墓迁移及地上青苗等问题作出处理，造成涉案土地未能按期开发的原因完全在于政府。根据《海南省闲置建设用地处置规定》第四条”因不可抗力、政府或者政府部门原因闲置满两年以及其他不属于无偿收回的闲置满两年的建设用地，由县级以上人民政府依法以核发换地权益书方式或者其他合法方式有偿收回土地使用权或者占用的土地”的规定，陵水县政府不能无偿收回涉案土地，更无权注销涉案的陵国用（旅）字第248、249、250、251、252号土地使用证，陵水县政府应以核发换地权益书方式或者其他合法方式与南丽公司商谈有偿收回涉案土地的使用权。综上，陵水县政府是在违反法律规定和法定程序的情况下作出无偿收回涉案土地的行政决定，严重侵害了南丽公司的合法权利，南丽公司遂诉请撤销陵水县政府作出的108号决定。
原审法院经审理查明，陵水县政府于2002年8月22日作出108号决定，认定南丽公司未按《国有土地使用权出让合同》约定的期限，对其受让取得的位于海南省陵水县光坡镇石牛岭面积分别为78亩、78.9亩、68.9亩、73.6亩、75.3亩，共计374.7亩的五块国有土地[国有土地使用证为：陵国用（旅）字第248、249、250、251、252号]开发建设旅游度假中心及配套设施项目，造成土地闲置达6年之久，遂决定无偿收回上述土地的使用权，并注销其国有土地使用证和用地勘测定界图。南丽公司对该决定不服，以陵水县政府至今未就征地补偿、坟墓迁移及地上青苗等问题作出处理，涉案土地未能按期开发的原因在于政府，且陵水县政府未将108号决定送达给南丽公司，存在程序违法为由，于2016年4月7日向原审法院提起行政诉讼，请求撤销陵水县政府作出的108号决定。
原审法院另查明，海南中保投资发展有限公司（以下简称中保公司）因与北京中企国际投资有限公司（以下简称中企公司）、王春河就南丽公司及公司资产的出让问题产生纠纷，诉至陵水黎族自治县人民法院，陵水黎族自治县人民法院作出（2011）陵民初字第6号民事判决。中企公司不服该判决，向原审法院提起上诉。原审法院于2011年10月17日作出（2011）海南一中民三终字第142号民事判决，认定：南丽公司在海南省陵水县取得5宗土地（计374.7亩）的使用权，因未依约定进行开发建设，陵水县政府于2002年8月将南丽公司名下的土地使用权无偿收回；2004年6月22日，中保公司与中企公司签订《协议书》，约定将南丽公司转让给中企公司；合同签订后，南丽公司的法定代表人于2004年8月变更为中企公司指定人员王春河。王春河既是该案中的被告，亦是另一被告中企公司的法定代表人。中企公司不服原审法院作出的（2011）海南一中民三终字第142号民事判决，向海南省高级人民法院申请再审，海南省高级人民法院于2012年7月20日作出（2012）琼民申字第281号民事裁定，裁定驳回中企公司的再审申请。（2011）海南一中民三终字第142号民事判决已发生法律效力。
原审法院认为，在（2011）海南一中民三终字第142号民事判决中已查明”南丽公司在陵水县取得5宗土地（计374.7亩）的使用权，因未依约定进行开发建设，陵水县政府于2002年8月将南丽公司名下的土地使用权无偿收回”这一事实，该生效判决涉及的是中保公司与中企公司就南丽公司及公司资产的出让纠纷，王春河自2004年开始担任南丽公司法定代表人的职务至今，且王春河作为该案的被告之一，同时亦是该案中作为南丽公司受让方中企公司的法定代表人，王春河对该生效判决所查明的事实应当十分清楚。原审法院于2011年10月17日作出该生效判决，作为南丽公司法定代表人的王春河，应自2011年10月17日起知道陵水县政府于2002年8月已将南丽公司名下的涉案土地无偿收回的事实，亦代表着南丽公司自2011年10月17日起便知道这一事实。《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。”《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（二）项规定：”有下列情形之一，已经立案的，应当裁定驳回起诉：......（二）超过法定起诉期限且无正当理由的......”南丽公司至2016年4月7日才向原审法院提起行政诉讼，已超过法定2年起诉期限，原审法院据此裁定驳回南丽公司的起诉。
南丽公司不服原审裁定，上诉请求二审法院撤销原审裁定，指令原审法院继续审理本案。理由是：一、原审法院认定事实及适用法律错误。原审裁定以上诉人没有参与的诉讼涉及到本案的相关事实就认定上诉人早已经得知涉案土地被陵水县政府收回明显与事实不符。（2011）海南一中民三终字第142号案件与本案没有任何关系，上诉人及王春河本人根本不可能知道涉案土地的情况。原审法院在没有任何直接证据证明的情况下，仅凭推断就认为上诉人对涉案土地被陵水县政府收回的事实早已知情，明显属于主观推测。原审法院在此基础上以上诉人超过起诉期限驳回上诉人的起诉，明显是适用法律不当。二、被上诉人作出收回上诉人涉案土地的行政行为存在明显违法的情形。被上诉人作出收回上诉人土地的行政行为时证据不足，程序严重违法，剥夺了上诉人依法应享有的法律权利。
被上诉人陵水县政府答辩称，原审裁定驳回上诉人的起诉正确，请求二审法院予以维持。理由是：（2011）海南一中民三终字第142号民事判决中已查明陵水县政府于2002年8月将南丽公司名下的土地使用权无偿收回这一事实，实际控制管理上诉人的中保公司及南丽公司的法定代表人王春河均参加了诉讼，王春河应当自2011年10月17日起知道陵水县政府于2002年8月已将南丽公司名下的涉案土地无偿收回的事实，但上诉人直至2016年4月7日才向原审法院提起行政诉讼，已超过法定2年起诉期限。
本院认为，本案争议焦点是上诉人南丽公司提起本案诉讼是否超过法定起诉期限。《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。”依照该条规定，在陵水县政府未告知南丽公司诉权或者起诉期限的情况下，南丽公司应当在知道或者应当知道行政行为内容之日起2年内进行起诉，否则将丧失诉权。根据本案审理查明的情况，中保公司因与中企公司、王春河就南丽公司及公司资产的出让问题产生纠纷诉至人民法院，原审法院于2011年10月17日作出（2011）海南一中民三终字第142号民事判决，该判决认定”南丽公司在陵水县取得5宗土地（计374.7亩）的使用权，因未依约定进行开发建设，陵水县政府于2002年8月将南丽公司名下的土地使用权无偿收回”这一事实，该判决已经发生法律效力。王春河在该案中既是被告之一，又是另一被告中企公司的法定代表人，王春河应当自2011年10月17日起知道陵水县政府于2002年8月已将南丽公司名下的涉案土地无偿收回的事实。虽然南丽公司并不是（2011）海南一中民三终字第142号案件的当事人，但王春河自2004年开始担任南丽公司法定代表人的职务至今，据此可认定南丽公司也应当自2011年10月17日起就知道这一事实。南丽公司于2016年4月7日向原审法院提起本案诉讼，明显已超过法定2年起诉期限。原审裁定驳回南丽公司的起诉并无不当，应予维持。南丽公司主张其及王春河对涉案土地被无偿收回的事实并不知情，其提起本案诉讼并未超过法定起诉期限的上诉理由缺乏事实和法律依据，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之规定，裁定如下：
驳回上诉，维持原裁定。
本裁定为终审裁定。
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审判长孔琼
审判员叶珊茹
审判员魏文豪
法官助理李宗帅
书记员文明哲
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