海南省海口市中级人民法院
p t ; ” > 行 政 裁 定 书
（2016）琼01行初130号
原告李益喜，女，汉族，1938年2月8出生，住海口市。
委托代理人吴云，海南泽田律师事务所律师。
委托代理人刘成芳，海南泽田律师事务所律师助理。
被告海口市人民政府，住所地海口市长滨路市政府第二办公区。
法定代表人倪强，市长。
委托代理人王季彪，该市政府法律顾问室法律顾问。
被告海口市国土资源局，住所地海口市长滨路市政府第二办公区15号北楼。
法定代表人盛林，局长。
以上两被告的共同委托代理人���礼，海南唐海律师事务所律师。
被告海口市规划局秀英分局，住所地海口市龙华区丘海大道25号。
法定代表人徐小明，局长。
委托代理人廖波，海南瑞来律师事务所律师。
原告李益喜诉被告海口市人民政府（以下简称市政府）、海口市国土资源局（以下简称市国土局）、海口市规划局秀英分局（以下简称秀英规划分局）土地行政协议一案，本院受理后，依法组成合议庭，公开开庭审理了本案，现已审理终结。
原告李益喜诉称,原告是海口市龙华区滨涯村股份合作经济社（曾用名海口市新华区滨涯村）的村民。1994年4月，因秀英规划分局（原海口市城市规划局秀英区规划国土监察分局）拟在原告的自留地上建办公大楼，遂与原告协商征地事宜。原告在与秀英规划分局协商同意保有部分自留宅基地的前提下，于1994年4月26日与秀英规划分局就保留部分宅基地签订了《征地补充协议》后，原告才同意涉案土地征收，并就补偿款问题于1994年5月13日与秀英规划分局签订了《征地协议书》。两份协议书约定：秀英规划分局以每亩壹拾伍万元的补偿款征用滨涯村后公路东侧的村民自留地面积为8577.5㎡（12.8亩）；村民每户被征五分地以上者，补分120㎡面积作为宅基地，五分地以下者补分80㎡作为宅基地；补充协议同样具有法律效力。2013年政府拆迁滨涯村时，原告方得知争议地己于1998年1月18日登记到第三人名下。原告认为，秀英规划分局欺瞒市国土局，且在征地协议中未明确补分宅基地的具体户数，导致原告的涉案土地于1998年1月18日被置换给第三人，并登记到第三人名下。市政府作为征地主体，在征地过程中处于负总责的法律地位。故被告违反了《中华人民共和国土地管理法》等法律、法规的规定，应当履行征用土地协议并明晰原告分得的土地面积及位置。综上，为维护原告的合法权益，根据《行政诉讼法》的相关规定，特诉至人民法院，请求法院判令：1、被告履行征用土地协议，分给原告宅基地120㎡；2、被告承担本案诉讼费用。
被告市政府及市国土局共同答辩称，根据原告自己提供的《征地协议书》和《征地补充协议》，签约主体均为土地所有权人”海口市新华区滨涯村委会”，而不是原告。故原告不具有原告诉讼主体资格。征地协议从签订之日1994年起，距今已超过20年。根据《中华人民共和国行政诉讼法》第四十六条的规定，原告的起诉已经超过法定20年最长期限。依法应驳回其起诉。根据《征地协议书》和《征地补充协议》，属于原告所在村委会与秀英规划分局作为平等民事主体之间的民事协议，不属于行政合同，故不属于行政诉讼受案范围。市政府未参与涉案征地协议的签订，故其被告主体资格不适格。综上，原��的诉讼请求不属于行政诉讼受案范围，原告主体资格不适格，且已超过起诉期限，恳请法院依法驳回原告的起诉。
被告秀英规划分局答辩称，原告的起诉已经超过了20年的最长起诉期限，应予驳回。
经审理查明，三被告均未与原告签订过宅基地方面的协议。原告所出示的《征地协议书》和《征地补充协议》，则是原海口市新华区滨涯村民委员会与原海口市城市规划局秀英区规划国土监察分局签订的。
上述事实有《征地补充协议》、《征地协议书》以及庭审笔录在案为凭，足资认定。
本院认为，原告诉请被告履行协议，应当证明双方之间存在��同关系。本案中，三被告均未与原告签订过宅基地方面的协议。原告提供的《征地补充协议》和《征地协议书》，也显示原告不是合同当事人。因此，原、被告并未存在合同关系。据此，原告提起本案诉讼，缺乏事实根据，应当裁定驳回起诉。依照《中华人民共和国行政诉讼法》第四十九条第（三）项和《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，裁定如下：
驳回原告李益喜的起诉。
本案不收取案件受理费。原告李益喜已预交的案件受理费50元，予以退还。
如不服本裁定，可在裁定书送达之日起十日内，向本院递交上诉状，并按对方当事人的人数提出副本，上诉于海南省高级人民法院。
审判长符汉平
审判员钟山
审判员何芳
书记员麦海燕
附相关法条：
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