海南省高级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼行终1704号
海南省高级人民法院
行政裁定书
(2017)琼行终1704号
上诉人（原审原告）陈卫世，男，1978年9月17日出生，回族，现住三亚市。
委托代理人刘苇，男，1983年9月20日出生，回族，现住三亚市。
被上诉人（原审被告）三亚市人民政府，住所地三亚市新风路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。
原审第三人三亚市天涯区人民政府，住所地三亚市凤凰路319号。
负责人江雄标，区长。
委托代理人吴开诚，三亚市天涯区法制办公室工作人员。
原审第三人三亚市天涯区回新社区居民委员会，住所地三亚市天涯区回新社区居民委员会回新村。
负责人海世豪，主任。
上诉人陈卫世因其诉被上诉人三亚市人民政府（以下简称三亚市政府）及原审第三人三亚市天涯区人民政府（以下简称天涯区政府）、原审第三人三亚市天涯区回新社区居民委员会（以下简称回新居委会）土地行政征收一案，不服海南省三亚市中级人民法院（2017）琼02行初106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。上诉人陈卫世及其委托代理人刘苇，被上诉人三亚市政府委托代理人黄广明，原审第三人天涯区政府委托代理人吴开诚，原审第三人回新居委会负责人海世豪到庭参加诉讼。本案现已审理终结。
1988年5月27日，三亚市政府作出市府函[1988]17号《关于市乡镇企业经济开发公司用地的批复》（以下简称17号批复），同意市建委安排位于红星八队西侧坡地的4000平方米土地作为三亚市乡镇企业经济开发公司（以下简称市乡镇企业公司）兴建营业大楼和职工宿舍用地，该土地范围涉及陈卫世等十户农民的宅基地。陈卫世不服，于2017年5月25日提起行政诉讼，请求确认三亚市政府于1988年征收其400平方米宅基地的行政行为违法，判令三亚市政府为其安排400平方米的宅基地。
原审查明，1988年5月27日，三亚市政府作出17号批复。1989年3月25日，市乡镇企业公司与回新居委会签订《国家建设征用土地协议书》，约定：为兴建职工宿舍楼工程，需征用羊栏镇回新乡南新农场八队（即红星八队）地段的六亩（折合4000平方米）土地,其中鱼塘4亩，每亩补偿12500元，共计50000元；宅基650立方米，每立方米补偿70元，共计45500元；土坟墓26座，每座补偿170元，共计4420元；片石4立方米，每立方米补偿20元，共计80元。三亚市国土资源局（以下简称三亚市国土局）和三亚市城乡建设局作为鉴证机关在该协议书上盖章。1989年3月30日，回新居委会向十农户之一的陈明华出具《协议合同书》，约定：陈明华同意将本人宅基地转让给市乡镇企业公司征用，回新居委会保证，决定划分社员土地住宅时优先照顾，安排一份宅基地给陈明华，以协议书为据。时任回新居委会书记杨永义、主任蒲景棠在该《协议合同书》上签名，并加盖回新居委会印章。1992年10月，市乡镇企业公司向三亚市国土局申请转让涉案4000平方米土地给泸州市城市建设综合开发公司海南公司（以下简称泸州城建公司）。1992年11月15日，三亚市国土局作出市国土字[1992]185号《关于同意海南省三亚市乡镇企业经济开发公司将南新八队西侧地段部分土地转让给泸州市城市建设综合开发公司海南公司的批复》，同意市乡镇企业公司将南新八队地段部分土地转让给泸州城建公司作为综合楼用地。1992年11月17日，泸州城建公司依据三亚市国土局的通知，依法缴纳相关土地转让费用，与三亚市国土局签订《合同书》。1993年4月20日，泸州城建公司与回新居委会签订《征地协议书》，约定泸州城建公司征用回新居委会520平方米土地作为该公司兴建”三亚华坤大酒店”补充用地。1993年12月23日，泸州城建公司根据三亚市国土局的通知，补缴了超出原批准面积的567.27平方米土地的地价款。2003年4月6日，泸州城建公司与海南世嘉投资有限公司（以下简称世嘉公司）签订《合同书》，约定泸州城建公司将”三亚华坤大酒店”整体建设项目及相关资产以1585万元的价格转让给世嘉公司。2005年5月，三亚地方税务稽查局检查世嘉公司的财务问题时，工作人员持票据向相关人员了解情况，其中一张出具于2005年1月28日的发票记载：付款方为世嘉公司，收款方为回新居委会，品目为土建（含青苗费），金额为1230000元，收款方一栏有陈明华等四人的签名。经核对，该四人否认发票上的名字是其本人所签。此后，包括陈卫世在内的十户农民到三亚市凤凰镇人民政府等部门信访，要求按《协议合同书》给十户农民各分一处宅基地。2017年5月25日，陈卫世提起行政诉讼，请求：一、确认三亚市政府于1988年征收其400平方米宅基地的行为违法；二、判令三亚市政府履行《协议合同书》，为其安排400平方米的宅基地；三、确认三亚市政府于1988年征收其土地的行为违约。经原审法院释明，陈卫世撤回第三项诉求，并称：本案被征土地总面积为4000平方米，按十户计算，每户被征宅基地面积约为400平方米。1989年3月30日，回新居委会给十户农民均出具了内容相同的《协议合同书》，但后来回新居委会收回了除陈明华之外的其余九户的《协议合同书》。1989年，陈卫世从回新居委会领取了5000元征收补偿款，后在回新居委会换届时又领取了7000元征收补偿款。
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。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。行政诉讼起诉期限，指的是提起诉讼的法定有效期限，超出起诉期限，相对人丧失对该行政行为提起诉讼的权利。本案中，陈卫世诉求确认三亚市政府于1988年征收其位于红星八队西侧坡地400平方米宅基地的行为违法。经查，1988年5月27日，三亚市政府作出17号用地批复；1989年3月25日，市乡镇企业公司与回新居委会签订《国家建设征用土地协议书》，陈卫世亦于同年领取了5000元征地补偿费。此后，本案所涉4000平方米土地被征收。陈卫世于2017年5月25日提起诉讼，显然已经超过了二十年的法定最长起诉期限。依照《中华人民共和国行政诉讼法》第四十六条、《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）项之规定，裁定驳回陈卫世的起诉，案件受理费50元予以退还。
上诉人陈卫世上诉称，一、1988年三亚市政府的征地行为不是一次性行为，上诉人对17号用地批复从不知情，不应以原始征地发生的时间作为起算点，本案没有超过起诉期限。二、与上诉人相关的只有回新居委会出具的《协议合同书》，这是行政协议，因回新居委会怠于主张权利，上诉人领取补偿款的权益受到损害。若因公共利益而无法履行补偿导致上诉人遭受损失，应合理补偿，无法兑现《协议合同书》应当按照市场价赔偿。三、三亚市国土局和市乡镇企业公司之间的虚假合同损害了国家和集体利益，侵犯了上诉人的合法权益。综上，请求撤销原审裁定，指令原审法院对本案进行实体审理。
被上诉人三亚市政府答辩称，一、被诉征地行为发生于1988-1989年间，上诉人于2017年5月提起本案诉讼，超过法定最长起诉期限，应驳回其起诉。二、上诉人要求三亚市政府履行回新居委会出具的《协议合同书》于法无据，对其诉讼请求应予驳回。该《协议合同书》是回新居委会出具的，与政府无关。三、被诉征地行为证据确凿，程序合法。上诉人等十户确认收到13万元，已超额领取征地补偿款。综上，请求驳回上诉，维持原裁定。
原审第三人天涯区政府的陈述意见与三亚市政府的答辩意见一致。请求驳回上诉，维持原裁定。
原审第三人回新居委会陈述称，对原审裁定没有意见。请求驳回上诉，维持原裁定。
在本院审理过程中，上诉人向本院提交《请求兑现合同协议书》《天涯区政府办公室文件签收回执》《关于协调化解海经杰等10户信访事项会议的方案》《2015年三亚市人民政府办公室公文呈批单》《（2010）市信办信字第69-71号》《天涯区回新社区十位农民申诉控告书》等材料。本院认为，上述材料上诉人在第一审程序中无正当事由未提供而在第二审程序中提供，依据《最高人民法院关于行政诉讼证据若干问题的规定》第七条第二款之规定，本院不予接纳。
本院二审查明的事实与原审裁定认定的事实一致。
本院认为，《中华人民共和国行政诉讼法》第四十六条规定，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，人民法院不予受理。据此规定，该期限是最长保护期限，不存在中止、中断、延长的法定事由；其起算时间节点，是自行政行为作出之日，而非行政相对人、利害关系人知道或者应当知道之日。根据本案查明的事实，1988年5月27日,三亚市政府作出17号批复，陈卫世于2017年5月25日起诉，超过了法定的起诉期限，依法应当不予立案，已经立案的，应当裁定驳回起诉。综上，原审裁定认定事实清楚，适用法律正确，应予维持。陈卫世的上诉请求和上诉理由不能成立，应予驳回。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。
审判长聂海波
审判员王华
审判员刘利红
二○一七年十二月二十七日
书记员井泉旺
附相关法律条文：
《中华人民共和国行政诉讼法》
第四十六条公民、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。
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。
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
第三条有下列情形之一，已经立案的，应当裁定驳回起诉：
(一)不符合行政诉讼法第四十九条规定的;
(二)超过法定起诉期限且无正当理由的;
(三)错列被告且拒绝变更的;
(四)未按照法律规定由法定代理人、指定代理人、代表人为诉讼行为的;
(五)未按照法律、法规规定先向行政机关申请复议的;
(六)重复起诉的;
(七)撤回起诉后无正当理由再行起诉的;
(八)行政行为对其合法权益明显不产生实际影响的;
(九)诉讼标的已为生效裁判所羁束的;
(十)不符合其他法定起诉条件的。
人民法院经过阅卷、调查和询问当事人，认为不需要开庭审理的，可以迳行裁定驳回起诉。
《最高人民法院关于行政诉讼证据若干问题的规定》
第七条原告或者第三人应当在开庭审理前或者人民法院指定的交换证据之日提供证据。因正当事由申请延期提供证据的，经人民法院准许，可以在法庭调查中提供。逾期提供证据的，视为放弃举证权利。
原告或者第三人在第一审程序中无正当事由未提供而在第二审程序中提供的证据，人民法院不予接纳。
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