海南省高级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼行终1231号
上诉人（原审原告）：张国利，男，1975年7月10日出生，汉族，住海南省海口市。
委托诉讼代理人：赵明民，海南方圆律师事务所律师。
委托诉讼代理人：魏莱，海南方圆律师事务所律师。
被上诉人（原审被告）：海口市人民政府，住所地海南省海口市秀英区长滨一路政府第二办公区。
法定代表人：倪强，该市市长。
委托诉讼代理人：张礼，海南唐海律师事务所律师。
委托诉讼代理人：郑雯，海口市人民政府法律顾问室法律顾问。
原审第三人：海南珠江控股股份有限公司，住所地海南省海口市滨海大道珠江广场帝豪大厦29层。
法定代表人：王春立，该公司总经理。
委托诉讼代理人：李琳，海南问源律师事务所律师。
委托诉讼代理人：蔡秦波，海南问源律师事务所律师。
原审第三人：海口鸿洲置业发展有限公司，住所地海南省海口市美兰区海榆大道188号员工1号楼。
法定代表人：王大富，该公司董事长。
委托诉讼代理人：陆加航，海南新概念律师事务所律师。
原审第三人：海口中信鸿洲滨海建设有限公司，住所地海南省海口市灵山镇灵山游乐园园主楼一楼103室。
法定代表人：韩春麟，该公司总经理。
委托诉讼代理人：陈挺，海南瑞来律师事务所律师。
委托诉讼代理人：李羚，海南瑞来律师事务所律师。
上诉人张国利因与被上诉人海口市人民政府（以下简称市政府）以及原审第三人海南珠江控股股份有限公司（以下简称珠江控股公司）、海口鸿洲置业发展有限公司（以下简称鸿洲置业公司）、海口中信鸿洲滨海建设有限公司（以下简称鸿洲滨海建设公司）行政登记一案，不服海南省海口市中级人民法院（2017）琼01行初711号行政裁定，向本院提起上诉。本院于2017年9月21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。
一审法院经审理查明，经市政府批准，广州珠江外资建设总公司与海口市城市建设总公司共同合作开发包括涉案土地在内的230亩土地。1988年经市政府批准，广州珠江外资建设总公司协议取得上述合作开发用地中的120亩国有土地使用权进行单独开发。1994年3月15日，经海南珠江实业股份有限公司申请土地登记发证，市政府为海南珠江实业股份有限公司颁发了海口市国用（籍）第字G0017号《国有土地使用证》，其中涉案土地在该土地证范围内，土地用途为商业服务业用地，面积为80190.49平方米。1999年4月，海南珠江实业股份有限公司向市政府国土部门申请办理土地分割手续。经批准后，市政府于1999年5月为海南珠江实业股份有限公司核发了海口市国用（籍）字第G0329、G0330、G0331号《国有土地使用证》。2000年1月，经海南省股改办公室批准同意海南珠江实业股份有限公司名称变更为珠江控股公司，2000年6月，珠江控股公司遂向市政府申请办理上述G0329、G0330证的土地使用权人名称变更登记手续。经批准，市政府于2000年8月为珠江控股公司核发了证号为海口市国用（籍）字第G0436号、G0431号的《国有土地使用证》。2010年1月，经市政府国土部门审批同意，珠江控股公司将上述G0436号、G0431号土地证转让给鸿洲置业公司。根据鸿洲置业公司的申请，市政府于2010年5月31日向鸿洲置业公司颁发了海口市国用（2010）字第006870号、006871号《国有土地使用证》。2012年2月23日，市政府又向鸿洲滨海建设公司颁发海口市国用（2012）第001876号、001862号《国有土地使用证》。
2015年6月16日，龙珠新城业主委员会在其向海南省人民政府办公厅、海口市规划局、海口市国土资源局等部门递交的《关于”鸿洲中心”违法规划建设的第三次投诉举报书》中提出，”珠江控股公司1999年5月将小区土地证号G00**，土地面积8万平方米，进行非法违规分割，一块分成三块，分别为G0431、G0436、G0433，分割目的是违规建设或转让。”张国利在该举报书签名表上签名。2015年7月31日，海口市国土资源局向龙珠新城业主管理委员会作出《关于龙珠新城业主委员会第三次投诉举报书涉及土地情况有关问题等答复的函》。
一审法院认为，张国利诉请确认市政府将珠江控股公司名下海口市国用（籍）字第G0329号《国有土地使用证》项下土地转让至鸿洲置业公司名下即颁发海口市国用（籍）字第G0436号《国有土地使用证》的行政行为无效，该土地转让情况由于张国利在2015年6月16日向海南省人民政府办公厅等部门递交的《关于”鸿洲中心”违法规划建设的第三次投诉举报书》中有明确的表述，则可以认定张国利在2015年6月16日已对该土地转让事实知晓，根据《中华人民共和国行政诉讼法》第四十六条规定，公民、法人或者其他组织直接向人民法院提起诉讼的，应当自知道或者应当知道作出行政行为之日起六个月内提出。张国利直至2017年1月6日向一审法院提起本案之诉，已超过法律规定的起诉期限，依法应不予受理，已经立案的，应裁定驳回起诉。依照《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之规定，一审法院裁定驳回张国利的起诉。
张国利不服一审裁定，上诉称，涉及不动产的被诉行政行为一直在持续中，上诉人的权益持续受到侵害。上诉人并不享有确认行政行为无效的法定权利，只有人民法院有权确认行政行为是否有效。单纯的时间经过不能改变无效行政行为的违法性，上诉人请求确认涉及不动产的行政行为无效不应受6个月诉讼时效的限制，应当适用20年最长起诉期限。若行政行为经确认无效后，上诉人提出对无效行政行为造成的损失进行赔偿的请求，则适用法律关于诉讼时效的规定。一审法院以超过诉讼时效为由裁定驳回起诉不合理，请求二审法院撤销一审裁定。
被上诉人市政府答辩称，上诉人及其他业主早在2015年6月即已向海南省人民政府办公厅等部门提交《关于”鸿洲中心”违法规划建设的第三次投诉举报书》，一审裁定关于上诉人早在2015年6月16日就已经得知涉案具体行政行为的事实认定清楚。根据《中华人民共和国行政诉讼法》第四十六条第一款的规定，上诉人应当在知道涉案具体行政行为之日起六个月内即2015年12月底之前提起诉讼，一审裁定驳回上诉人的起诉符合法律规定。
原审第三人珠江控股公司陈述称，其同意市政府的答辩意见，上诉人的起诉已超过法定起诉期限。
原审第三人鸿洲置业公司陈述称，其同意市政府的答辩意见。所有行政行为在作出之后就一直处于持续状态，当事人的权益就一直受影响，上诉人关于被诉行政行为一直在持续中，故不应适用六个月的起诉期限的上诉理由不能成立。
原审第三人鸿洲滨海建设公司陈述称，本案应适用《中华人民共和国行政诉讼法》第四十六条第一款关于六个月的起诉期限的规定，上诉人的起诉超过了起诉期限。
本院对一审法院查明的事实予以确认。
本院认为，本案被诉行政行为是市政府将珠江控股公司名下海口市国用（籍）字第G0329号《国有土地使用证》项下土地转让至鸿洲置业公司名下的行政行为。本案二审的争议焦点是上诉人张国利提起本案诉讼是否超过法定起诉期限。《中华人民共和国行政诉讼法》第四十六条规定：”公民、法人或者其他组织直接向人民法院提起诉讼的，应当自知道或者应当知道作出行政行为之日起六个月内提出。法律另有规定的除外。因不动产提起诉讼的案件自行政行为作出之日起超过二十年，其他案件自行政行为作出之日起超过五年提起诉讼的，人民法院不予受理。”根据审理查明的情况，该土地转让情况张国利在2015年6月16日向海南省人民政府办公厅等部门递交的《关于”鸿洲中心”违法规划建设的第三次投诉举报书》中有明确的表述，由此可以认定张国利在2015年6月16日已知道该土地转让事实，其应当自2015年6月16日起六个月内提起行政诉讼，而张国利直至2017年4月11日才向一审法院提起本案诉讼，明显已超过法律规定的起诉期限。《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，超过法定起诉期限且无正当理由的，已经立案的，应当裁定驳回起诉。因此，一审裁定以张国利的起诉超过起诉期限为由驳回其起诉并无不当。张国利主张本案应适用20年的最长起诉期限，但20年最长起诉期限适用的前提是公民、法人或者其他组织不知道行政机关作出的行政行为的内容。而本案中，张国利在2015年6月16日就已知道被诉行政行为的内容，则自然不能适用有关20年最长起诉期限的规定。关于张国利主张被诉行政行为无效并认为无效行政行为不受起诉期限限制的问题，行政诉讼法及相关司法解释并无针对无效行政行为起诉期限的特殊规定，行政相对人或者利害关系人起诉要求确认行政行为无效的，通常仍适用行政诉讼法及相关司法解释关于起诉期限的一般规定，张国利的该上诉理由缺乏法律依据，本院不予支持。综上，一审裁定驳回张国利的起诉并无不当，应予维持。张国利的上诉理由不能成立，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之规定，裁定如下：
驳回上诉，维持原裁定。
本裁定为终审裁定。
审判长孔琼
审判员叶珊茹
审判员魏文豪
二〇一七年十一月九日
法官助理李宗帅
书记员王绛
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