海南省三亚市中级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼02行终71号
上诉人（原审原告）：黎家毫，男，1950年3月17日出生，黎族，现住三亚市。
委托诉讼代理人：张晓晴，海南邦威律师事务所律师。
被上诉人（原审被告）：三亚市吉阳区城市管理局，住所地：三亚市榆亚路19号。
法定代表人：孙定仁，该局局长。
上诉人黎家毫因与被上诉人三亚市吉阳区城市管理局强制拆除房屋及行政赔偿纠纷一案，不服三亚市城郊人民法院(2017)琼0271行初61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。
原审法院认为，《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���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，黎家毫自2015年1月30日知道吉阳城管局拆除其房屋的行为后，直至2017年3月22日才提起诉讼，超过了上述法律规定的2年的起诉期限。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，裁定驳回黎家毫的起诉。
上诉人上诉认为：上诉人房屋被强制拆除期间，适值三亚市行政区进行重大调整，撤销河东区委会后筹建三亚市吉阳区政府。当时临春居委会配合河东区委会到临春村对上诉人和其他村民房屋进行摸底、测量工作，但是上诉人并不知道要被强制拆除。上诉人的房屋被强拆后上诉人事先未被告知，事后经打听知道系由三亚市政府组织多部门联合拆除，参加的人员有三亚市政府、河东区委会、临春居委会及城市管理局的工作人员。房屋被强拆后，上诉人痛失家园的心情久久无法平静，与临春50多户强制拆迁的村民先后到河东区委会上访，河东区委会推脱上诉人到三亚市政府去解决。上诉人先后多次到三亚市政府和被上诉人处投诉上访，寻求问题的解决。均被工作人员拒之门外。上诉人像无头苍蝇，多部门投递上访信件，多次登门信访局到处维权，三亚市政府每次的答复都是会尽快调查解决，但是一��迟迟等不到市政府的书面答复。上诉人找过吉阳区政府，市综合执法局、吉阳区综合执法局也均得不到相应的回应，两级政府和河东区委会以及市综合执法局和被上诉人互相推诿，上诉人维权无门，苦不堪言。最后经过上诉人的不懈努力，直至上诉人向法院提起诉讼前一个月才知道拆除房屋的主体为被上诉人。根据法律规定的两年起诉期限，上诉人的起诉并未超过期限，被上诉人强制拆除上诉人房屋使得上诉人至今流离失所，一审法院未审查被上诉人违法具体行政行为的实体问题，反而违背法律规定驳回上诉人的诉讼请求，无法体恤民情，做到司法公平公正。综上，一审法院基于起诉期限裁定驳回上诉人的诉讼请求没有事实和法律依据。请求二审法院依法查明事实，支持上诉人的诉讼请求，判决撤销三亚市城郊人民法院（2017)琼0271行初61号行政裁定书，确认被上诉人强制拆除上诉人房屋行为违法，赔偿上诉人的房屋损失2035800元；；赔偿上人的房屋租赁损失123333元；赔偿上诉人的租房居住损失61660元；赔偿上诉人的律师服务费损失254475元；本案一、二审案件诉讼费等费用由被上诉人承担。
本院二审查明：2015年1月30日，上诉人黎家毫所建房屋在未经任何处罚，未被事先告知的情况下，直接被有关部门强制拆除。上诉人为讨要说法，寻求问题的合理解决，多次到三亚市人大、三亚市人民政府、三亚市吉阳区人民政府、三亚市综合行政执法局、三亚市吉阳区城市管理局等部门单位投诉��访，递交信函。一直未得到及时答复和解决。直至2017年2月21日上诉人通过其委托律师调取才正式拿到三亚市吉阳区信访局2015年5月26日作出的《关于黎家毫信访件的复函》，该复函明确确认黎家毫所建房屋为违法建筑，应予以拆除。
本院认为，本案上诉人的房屋被强制拆除，事前未经处罚程序，上诉人一直未经合法程序得知其房屋被拆除的行为性质，亦无法得知强制拆除其房屋的具体执法部门，直至2017年2月21日上诉人通过自己的个人行为才获得政府部门对拆除自己房屋行为的定性和不予赔偿的结果。根据《中华人民共��国行政诉讼法》第二条第一款规定，公民、法人或者其他组织认为行政机关和行政机关工作人员的行政行为侵犯其合法权益，有权向人民法院提起诉讼。对于行政机关作出行政行为时未告知相对人的事实行政行为，当事人向人民法院提起行政诉讼必须以其认识到行政机关作出的行政行为侵犯了其合法权益时间为准。本案上诉人直至2017年2月21日才正式取得《关于黎家毫信访件的复函》，知道了拆除其房屋的具体行政执法部门，明确了政府对拆除其房屋的性质认定和处理结果，其认为其合法权益受到侵犯应以该时间为准，至2017年3月22日黎家毫向法院提起诉讼，时间未超过一审法院认定的2年法定起诉期限。本案上诉人为寻求自身权益的合法救济，以试错方式先以三亚市综合行政执法局作为被告向人民法院提起诉讼，在被告知被告主体错误后再改换以本案被上诉人三亚市吉阳区城市管理局作为被告提起本案诉讼，本来就是在不规范行政执法环境下的无奈之举。一审法院无视本案上诉人的艰苦维权过程，简单以起诉期限超过法定2年时间驳回上诉人起诉，不利于引导社会民众通过司法程序合理有序地解决社会纠纷，缓和社会矛盾，构建起和谐稳定的社会环境，应予以纠正。
本案一审系以上诉人起诉超过法定起诉期限驳回上诉人起诉，属于程序上的法律审查，本案二审审查的范围限于一审裁定认定事实和适用法律是否清楚、正确，不涉及被诉行政行为的实体审查，因此关于上诉人提出的确��行政行为违法，赔偿损失等实体诉讼请求，不属于二审审查范围，本院不予审查。
综上，一审裁定认定事实不清，适用法律错误，应予纠正。依照《中华人民共和国行政诉讼法》第八十九第一款第（二）项；《最高人民法院关于执行<中华人民共和国行政诉讼法>若问题的解释》第六十八之规定，裁定如下：
一、撤销三亚市城郊人民法院作出的（2017）琼0271行初61号行政裁定；
二、本案指令三亚市城郊人民法院继续审理。
本裁定为终审裁定。
审判长李宝鹏
审判员左家锋
审判员林元贵
二〇一七年十二月二十五日
书记员邢华云附：本案相关法律条文
《中华人民共和国行政诉讼法》
第八十九条人民法院审上诉案件，按照下列情形，分别处理：
(一)原判决、裁定认定事实清楚，适用法律、法规正确的，判决或者裁定驳回上诉，维持原判决、裁定；
(二)原判决、裁定认定事实错误或者适用法律��法规错误的，依法改判、撤销或者变更；
(三)原判决认定基本事实不清、证据不足的，发回原审人民法院重审，或者查清事实后改判。
(四)原判决遗漏当事人或者违法缺席判决等严重违反法定程序的，裁定撤销原判决，发回原审人民法院重审。
原审人民法院对发回重审的案件作出判决后，当事人提起上诉的，第二审人民法院不得再次发回重审。
人民法院审理上诉案件，需要改变原审判决的，应当同时对被诉行政行为作出判决。
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
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