海南省海口市中级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼01行初708号
原告吴志贞，女，1968年11月18日出生，汉族，住海口市。
委托代理人赵明民，海南方圆律师事务所律师。
委托代理人魏莱，海南方圆律师事务所律师。
被告海口市人民政府，住所地海口市秀英区长滨一路政府第二办公区。
法定代表人倪强，市长。
委托代理人张礼，海南唐海律师事务所律师。
委托代理人杨敏杰，海口市人民政府法律顾问室法律顾问。
第三人海南珠江控股股份有限公司，住所地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，董事长。
委托代理人李琳，海南问源律师事务所律师。
委托代理人蔡秦波，海南问源律师事务所律师。
第三人海口鸿洲置业发展有限公司，住所地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，董事长。
委托代理人陆加航，海南新概念律师事务所律师。
第三人海口中信鸿洲滨海建设有限公司，住所地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，总经理。
委托代理人陈挺，海南瑞来律师事务所律师。
委托代理人李羚，海南瑞来律师事务所律师。
原告吴志贞诉被告海口市人民政府、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，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。
原告的诉讼请求为确认被告同意将闲置土地（证号G0436号）转让变更至鸿洲置业公司名下的行政行为无效。事实与理由：原告系海口市龙昆北路龙珠新城的业主。龙珠新城项目（以下简称项目）1990年规划获批，土地面积80190.49平方米，土地证号为G00**。项目第一期、第二期分别于1992年、1995年建成销售。1999年，被告依开发商珠江控股公司的申请，将G0017号土地分割登记为三块土地。（证号和面积分别为G0329号，12152.08平方米；G0330号，16512.62平方米；G0331号，51506.33平方米。2000年，被告办理名称变更登记，上述三宗土地证号变更登记为G04**号，12152.08平方米；G0436号，16512.62平方米；G0433号，51506.33平方米。土地用途等事项均未改变。上述土地中，项目已建成的第一期、二期位于G0433号宗地。原1990年规划中的小区公共球场，广场，绿地健身小公园，幼儿园等公共设施用地位于G0431号宗地；计划的项目第三期位于G0436号宗地，一直闲置至今。2004年，被告以G0436号宗地未按时限开发为由，向珠江控股公司发文通知拟无偿收回土地。2010年，被告依珠江控股公司申请，将G0436号宗地、G0431号宗地过户给鸿洲置业公司，并为鸿洲置业公司核发新的土地证，土地证号分别为006871号和068**号。2012年，依鸿洲置业公司申请，被告将这两宗土地变更登记在了鸿洲滨海建设公司名下，核发001876号，001862号土地证。以上侵害原告利益的分证及转让过户行为，原告作为龙珠新城小区业主始终不知情，致使这一违法及侵权行为持续至今。
原告认为，被告上述行政行为违反国家禁止性法律法规，也侵害了原告合法权益，理应确认无效。理由如下：被告在明知证号G0436号宗地闲置，G0431号宗地系公共设施用地的情况下，却同意将其转让给鸿州置业公司，这一行政行为违反法律规定，侵害原告利益，理应依法确认无效。2004年，被告就曾以未按时限开发为由，发文拟回收G0436号宗地。由此可见，被告自己认为三期中未开发建设的G0436号宗地系闲置用地，应当予以收回。而同样未能开发的G043l号宗地，被告并未发文无偿收回，原因系该宗地为小区的公共设施用地，应属于小区业主共有。由此可见，被告对上述土地的具体情况完全知情，却作出前后矛盾的行为，于2010年同意将上述两宗地转让给了鸿洲置业公司，不但违反了法律关于土地使用权转让的强制性法律规定，而且侵害了原告的合法权益，该行政行为依法应当确认无效。被告在原告信访的回函即海土资籍字[2015]249号文中称，龙珠新城一、二期项目用地己经开发，项目投资额已经超过总投资额的25%，故该地不属于闲置土地。原告认为，如不存在将项目整体土地分证为三块宗地的行为，由于有龙珠新城一期、二期项目的投入，三期用地作为整个项目的一部分当然不属于闲置用地。但土地分证后，姑且不论分证行为是否合法，土地分证后，三期用地与政府建立了新的法律关系，换发了新的土地证，珠江控股公司对土地证号不同的龙珠新城第一期、二期项目的投资额就不能计算在内，被告原本也持这-
观点，并因此被告两次发文通知无偿收回三期用地。而被告最后却同意违反法律规定将自己认定的闲置土地转让，说轻点是-
种自相矛盾的做法，但实质上是一种明知故犯的违反国家强制性规定的违法行为。原告认为，龙珠新城三期如要开发，应当结合小区整体已经老旧的现状，照顾原有业主的利益，进行整体改造，整体规划，合理进行交通规划。原告与龙珠新城多位业主曾多次向省政府，市政府有关部门书面反映情况，并受到领导当面接访。被告虽然回函说明，却并未变更行政行为。
综上，被告上述行政行为违反法律规定，侵害了原告的合法权益，应予确认无效。请求法院依法确认被告上述行政行为无效。
被告市政府辩称，原告与被告作出的具体行政行为无法律上利害关系，依法应驳回其起诉。根据原告诉称，其诉请确认被告同意将闲置土地（证号G0436）转让变更至第三人无效的事实和理由，是该行为侵犯了原告作为小区业主的权利，且上述转让违反了法律法规的强制性规定。但根据土地登记档案，原告不是合法的国有土地使用权人，与涉案土地转让以及变更登记行政行为无法律上利害关系，不符合行政诉讼法规定的作为原告的资格，依法应驳回起诉。
第三人珠江控股公司述称：一、原告不具备本案的诉讼主体资格。根据《中华人民共和国行政诉讼法》第二十五条第一款的规定：”行政行为的相对人以及其他与行政行为有利害关系的公民、法人或者其他组织，有权提起诉讼。”故必须是与具体行政行为有法律上利害关系，才具有原告主体资格。而且这种利害关系是客观存在的，而非主观期望的，是实质性的而非形式上的。此外，这种利害关系必须是直接的而不是间接的。所谓直接联系，就是不需要其他中介环节而发生的法律联系，行政行为直接涉及了公民、法人或者其他组织的权益。如果是因与其他法律关系相联系而最终导致不利后果，受到这些不利后果影响的人则不具备适格的原告资格。结合本案的客观情况，原告购买的房屋座落于G0433号土地证上，且该土地证经依法分割后已将土地证办理至原告名下，其合法权益没有受到任何影响。原告起诉的G0436号土地证与原告不存在客观的、直接的利害关系。二、原告的起诉超过法定的诉讼时效期间，依法丧失了胜诉权。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。综合本案的事实，原告早已知道土地分割和变更登记的事实，但直到2016年才提起诉讼，其起诉已远远超过了从知道或者应当知道该具体行政行为内容之日起六个月内向人民法院提起诉讼的法定期限，依法应予驳回。
第三人鸿洲置业公司述称，原告不是适格主体，应当驳回。因原告并非本案诉争的土地证上相关权利人，不与本案诉争存在直接利害关系，所以不是适格的原告。原告的起诉也超过了起诉期限，理由与珠江控股公司意见一致。
第三人鸿洲滨海建设公司述称，原告提起的本案行政行为，原告不是涉案土地使用权人，其与土地使用权转让、过户登记没有法律上的利害关系，不符合行政诉讼法的原告条件，不享有原告主体资格，其诉请应予驳回。原告主张的土地证号实际已经注销，客观不存在，原告诉请已注销的土地证无诉讼的必要性及法律依据。在时效方面，原告的诉讼请求已经超过了行政诉讼时效，其诉请应予驳回。涉案土地权证注销、换证为鸿洲置业公司名下的时间均为2010年5月31日。根据《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”的规定，原告的诉请超过了行政诉讼时效，其诉请应予驳回。原告在其诉状中声称”自始不知情”不是事实，与其提供的证据自相矛盾。原告提供的2015年6月16日《关于”鸿洲中心”违法规划建设的第三次投诉举报书》中陈述了其在2014年12月、2015年5月就土地分证及过户提出过联名书，据此无论是从2014年12月起算行政诉讼时效、还是从2015年6月16日起算行政诉讼时效，涉案原告的诉请均超过了行政诉讼时效，其诉请应予驳回。
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，被告于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被告申请办理上述G0329、G0330证的土地使用权人名称变更登记手续。经批准，被告于2000年8月为珠江控股公司核发了证号海口市国用（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，被告于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向省政府办公厅、海口市委市政府、市规划局、市国土局递交《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。”原告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》。
本院认为，原告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原告在2015年6月16日向省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，则可以认定原告在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。原告直至2017年1月6日向本院提起本案之诉，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，裁定如下：
驳回原告吴志贞的起诉。
本案不收取案件受理费。原告吴志贞预交的案件受理费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。
审判长陈文红
审判员潘娜
审判员何芳
二〇一七年六月二十三日
法官助理文静
书记员麦海燕
书记员麦海燕
附相关法律法规规定：
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：
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（二）超过法定起诉期限且无正当理由的；
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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。
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