海南省高级人民法院
p t ; ” > 行 政 裁 定 书
(2017)琼行终1767号
海南省高级人民法院
行政裁定书
(2017）琼行终1767号
上诉人（原审原告）吕某，女，1975年12月2日出生，黎族，住三亚市。
上诉人（原审原告）杨某，女，2016年5月2日出生，黎族，住三亚市。
法定代理人吕某，女，1975年12月2日出生，黎族，住三亚市。系杨某之母。
上列二上诉人共同委托代理人邢福群，海南外经律师事务所律师。
被上诉人（原审被告）三亚市人民政府，住所地海南省三亚市新风路257号。
法定代表人吴岩峻，市长。
委托代理人黄广明，三亚市法制办公室工作人员。
上诉人吕某、杨某因其诉被上诉人三亚市人民政府（以下简称三亚市政府）房屋征收补偿一案，不服海南省三亚市中级人民法院（2017）琼02行初452号行政裁定，向本院提起上诉。本院依法组成合议庭，公开开庭审理了本案，上诉人吕某及其与上诉人杨某的共同委托代理人邢福群到庭参加诉讼。本案现已审理终结。
2016年4月11日，三亚市政府公布《东岸村棚户区改造项目符合安置条件人员拆迁补偿安置补充方案》（以下简称《东岸补充方案》）。2017年8月23日，吕某、杨某以《东岸补充方案》未将2016年5月2日出生的杨某列为安置对象进行补偿为由向原审法院提起行政诉讼，请求撤销《东岸补充方案》。
原审查明，2015年9月30日，三亚市政府作出三府〔2015〕185号《三亚市人民政府关于东岸村棚户区改造项目房屋征收决定》（以下简称185号《征收决定》），决定：征收东岸村棚户区改造项目范围内（东至海螺路，南至迎宾大道，西至凤凰路，北至荔枝沟路）的国有土地上的所有房屋，改造项目总占地面积约2940亩，需征收房屋面积约130万平方米；房屋征收主体为三亚市政府，征收实施单位为三亚市吉阳区人民政府（以下简称吉阳区政府）；征收时间为2015年9月30日至2016年3月30日。2016年4月11日，三亚市政府作出三府〔2016〕78号《三亚市人民政府关于印发东岸村棚户区改造项目符合安置条件人员拆迁补偿安置补充方案的通知》（以下简称78号《印发补充方案通知》），将《东岸补充方案》印发给各区人民政府、各管委会及市政府各有关单位。该方案第一条规定，自该方案批准发布之日止，符合该条规定条件的人员，可认定为安置对象。2016年10月12日、13日，吉阳区政府指派下属三亚市吉阳区住房和城乡建设局（以下简称吉阳区住建局）作为征收补偿实施（代理）单位，对吕某的被征收房屋及其他地上附着物进行清点、丈量和登记，并制作了《国家建设征地拆迁补偿统计表》和《国家建设征收拆迁补偿表》。在前述补偿表中，均备注了78号《印发补充方案通知》是征收补偿文件之一，吕某对表中所登记的被征收房屋补偿金额及安置人口数等信息均签名捺印予以认可。2016年10月24日，吕某（乙方）与吉阳区住建局（甲方）签订了《三亚市吉阳区东岸村棚户区改造项目1-5类安置对象房屋征收补偿协议书（货币补偿）》（以下简称《房屋征收补偿协议书》）。该协议确定乙方户籍人口数为吕某及其母亲李亚娘2人，并载明依据征收人三亚市政府批准实施的《东岸村棚户区改造项目拆迁安置补偿方案》和《东岸补充方案》等相关法律法规政策，甲乙双方在平等、自愿、协商一致的基础上，就乙方房屋征收补偿事宜签订如下协议:乙方被征收房屋位于三亚市××区委会，总建筑面积合计744.24平方米；乙方自愿选择货币补偿方式进行房屋征收补偿安置；甲方应向乙方支付房屋征收补偿总金额4342666.2元。之后，吕某领取了前述协议约定的全部款项。2017年8月23日，因征收实施单位依据《东岸补充方案》的规定，未将2016年5月2日出生的杨某列为安置对象进行补偿。吕某、杨某提起本案诉讼，请求撤销该方案。
另经原审法院调查，吕某于案件庭审时承认其在2016年10月24日与吉阳区住建局签订《房屋征收补偿协议书》时，已经知晓《东岸补充方案》的内容。
原审认为，《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。本案中，吕某已承认其在2016年10月24日与吉阳区住建局签订《房屋征收补偿协议书》时，已经知晓三亚市政府作出的《东岸补充方案》的内容。现其与女儿杨某于2017年8月23日提起本案诉讼，要求撤销《东岸补充方案》，已经超过《中华人民共和国行政诉讼法》第四十六条规定的六个月起诉期限，且没有证据证明其存在《中华人民共和国行政诉讼法》第四十八条第一款所规定的因不可抗力或者其他不属于其自身的原因耽误起诉期限的情形，依法应驳回其起诉。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，《诉讼费用交纳办法》第八条第（二）项、第二十七条第二款之规定，裁定驳回吕某、杨某的起诉。吕某、杨某已预交的案件受理费50元予以退还。
上诉人吕某、杨某上诉称，一、原审裁定适用法律错误。虽然吕某在签订《房屋征收补偿协议书》时知道《东岸补充方案》的内容，但是吉阳区政府承诺吕某”杨某补偿问题另外解决”，意味着三亚市政府承诺对《东岸补充方案》中关于”自本方案发布之日止”的规定进行更改。2017年2月28日吉阳区政府棚户改造小组就东岸村范围内补偿事宜召开会议，决定给予2016年4月11日至2017年2月24日出生的婴幼儿每人15万元的生活补助。至此，三亚市政府才明确对于2016年4月11日发布的《东岸补充方案》中关于”自本方案发布之日止”的规定不再变更，吕某、杨某在原审开庭后才获知此决议。此外，三亚市政府未告知吕某、杨某对《东岸补充方案》的诉权，根据《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》第四十一条的规定，吕某、杨某的起诉未超过起诉期限。二、事实上，吕某、杨某的起诉亦未超过起诉期限。（一）如前所述，本案应以2017年2月28日作为起诉期限起算点。（二）海南省高级人民法院2017年8月21日作出的（2017）琼行终762号行政判决确认三亚市政府185号《征收决定》违法，吕某、杨某才知道吉阳区政府的征收行为侵害了其合法权益，本案起诉期限应该从吕某、杨某知道该生效判决之日起算。综上，吕某、杨某的起诉没有超过起诉期限，原审裁定适用法律错误，认定事实错误，请求撤销原审裁定，指令原审法院继续审理本案。
被上诉人三亚市政府答辩称，一、吕某、杨某的起诉已超法定起诉期限。三亚市政府于2016年4月11日作出《东岸补充方案》，并在政府门户网站上向社会公布。吕某于2016年10月签字确认《国家建设征地拆迁补偿表》，并签订了《房屋征收补偿协议书》，已明确知悉三亚市政府作出《东岸补充方案》的行政行为，即吕某、杨某的起诉已经超过《中华人民共和国行政诉讼法》第四十六条第一款规定的六个月起诉期限，应予驳回。二、《东岸补充方案》不属于行政诉讼受案范围。《东岸补充方案》对被征收人及其他利害关系人的合法权益不产生独立的实际影响和直接的约束力，影响被征收人安置补偿的是三亚市政府依照安置补偿方案作出的补偿决定。对于《东岸补充方案》只能是在审理征收决定合法性时一并予以审查，吕某、杨某仅对《东岸补充方案》提起行政诉讼，不符合起诉条件。三、吕某与征收实施单位达成《房屋征收补偿协议书》，并领取补偿款的行为，意味着其同意、认可了《东岸补充方案》。吕某已签字确认征收实施单位对其房屋的测量登记结果，并在其女杨某出生后与征收实施单位签订《房屋征收补偿协议书》，领取了房屋征收补偿款，由此可见其对《东岸补充方案》已经认同。四、《东岸补充方案》的程序合法、有效。为了推进东岸村棚户区改造项目的实施，维护被征收人的合法权益，吉阳区政府拟定《东岸补充方案》，并报经三亚市政府审核同意后，依法对外公布，程序合法、有效。综上，请求依法驳回吕某、杨某的上诉，维持原审裁定。
二审期间，一、吕某向本院提交的证据：1.东岸棚户区改造工作领导小组办公室第12期《会议纪要》。本院对该证据的真实性、合法性、关联性予以认定，但该证据是吉阳区政府的一个内部文件，不是三亚市政府对《东岸补充方案》的调整，对该证据的证明力不予认可。2.《申请书》两份。本院对该两份证据的真实性、合法性予以认定，对关联性不予认可。二、三亚市政府向本院提交的（2017）琼行终1659号行政判决书和（2017）琼行终103号行政裁定书。本院对该两份证据的真实性、合法性予以认定，对关联性不予认可。
本院查明的事实与原审裁定认定的事实一致。
本院认为，本案争议焦点是吕某、杨某的起诉是否超过起诉期限。根据案件查明的事实，吕某于2016年10月24日与吉阳区住建局签订《房屋征收补偿协议书》，其在签订《房屋征收补偿协议书》时已知晓《东岸补充方案》的内容，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，法律另有规定的除外。即行政诉讼起诉期限是以知道或者应当知道作出行政行为之日为起算点，而非知道行政行为侵犯自己的权益之日起算。据此，本案应以2016年10月24日作为起诉期限的起算点，吕某、杨某于2017年8月23日提起诉讼已超过六个月的起诉期限，原审法院驳回吕某、杨某的起诉并无不当。
综上，吕某、杨某的上诉请求缺乏事实根据和法律依据，本院不予支持。原审裁定认定事实清楚、适用法律和处理结果正确，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。
审判长刘利红
审判员王华
审判员聂海波
二○一七年十二月二十七日
书记员李励云
附：相关法律、法规及规章条文
《中华人民共和国行政诉讼法》
第八十九条人民法院审理上诉案件，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。
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