海南省高级人民法院
p t ; ” > 行 政 裁 定 书
(2017)琼行终1766号
海南省高级人民法院
行政裁定书
(2017）琼行终1766号
上诉人（原审原告）吕学花，女，1975年12月2日出生，黎族，住三亚市。
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）三亚市吉阳区人民政府，住所地三亚市迎宾路483号。
法定代表人张华文，区长。
委托代理人王树伟，海南惠海律师事务所律师。
委托代理人吴海欧，三亚市吉阳区人民政府办公室科员。
上诉人吕学花因其诉被上诉人三亚市吉阳区人民政府（以下简称吉阳区政府）房屋征收补偿协议一案，不服海南省三亚市中级人民法院（2017）琼02行初451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，现已审理终结。
2016年10月24日，吉阳区政府委托三亚市吉阳区住房和城乡建设局（以下简称吉阳区住建局）与吕学花签订《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》），并依约支付了相关款项。2017年8月23日，吕学花以存在重大误解及吉阳区政府欺诈为由，向原审法院提起行政诉讼，请求撤销《房屋征收补偿协议书》。
原审查明，2015年9月30日，三亚市人民政府（以下简称三亚市政府）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：征收三亚市东岸村棚户区改造项目（以下简称东岸棚改项目）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，征收实施单位为吉阳区政府；征收时间为2015年9月30日至2016年3月30日；房屋征收部门应按照该决定及《三亚市人民政府办公室关于印发三亚市东岸村棚户区改造项目征收补偿安置方案的通知》（三府办〔2015〕270号）对被征收人给予公平补偿。2016年10月24日，被征收人吕学花（乙方）与吉阳区政府下属吉阳区住房和城乡建设局（甲方）签订了《房屋征收补偿协议书》。该协议确定乙方户籍人口数为吕学花及其母亲李亚娘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《东岸村棚户区改造项目符合安置条件人员征收补偿安置补充方案》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；乙方户籍人口2人，按人均安置房屋面积85平方米、每平方米17250元的标准给予一次性货币补偿，安置房屋面积为170平方米，补偿金额为2932500元；乙方现有居住房屋面积在525平方米以内（含525平方米）的部分，扣除其安置房屋面积,剩余房屋面积为355平方米，补偿金额958500元（按每平方米2700元的补偿标准计）；装修部分按乙方现有居住房屋建筑面积525平方米、每平方米500元给予补偿，补偿金额262500元；附着物及青苗部分补偿金额10774.2元;乙方现有居住房屋面积在525平方米以上、1000平方米以内（含1000平方米）的部分，扣除其安置房屋面积后，剩余房屋面积为219.24平方米，房屋补助（补贴）金额为175392元（按每平方米550元的补助标准和每平方米250元的搬迁补贴标准计）；甲方支付给乙方每户3000元的一次性搬迁补助；以上款项合计，甲方应向乙方支付房屋征收补偿总金额为4342666.2元。之后，吕学花领取了前述协议约定的全部款项。2017年8月23日，吕学花提起本案诉讼，请求撤销前述《房屋征收补偿协议书》。
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，根据吕学花提供的证据和调查询问的情况，可以确定吕学花于2016年10月24日与吉阳区政府下属吉阳区住房和城乡建设局签订《房屋征收补偿协议书》时，已经知晓该协议的内容。现其在签订《房屋征收补偿协议书》并领取了协议约定的全部款项之后，于2017年8月23日提起本案诉讼，要求撤销该协议，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、第二款，《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，裁定驳回吕学花的起诉。吕学花已预交的案件受理费50元予以退还。
上诉人吕学花上诉称，一、原审裁定适用法律错误。吕学花请求撤销《房屋征收补偿协议书》是合同纠纷，应适用《中华人民共和国合同法》第五十五条的规定，吕学花有一年的撤销权，其提起本案诉讼没有超过起诉期限。二、事实上，吕学花的起诉并未超过起诉期限。（一）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，讨论2016年4月11日之后出生孩子的补偿事宜，即本案应以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作出185号征收决定的行政行为违法，吕学花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学花知道该生效判决之日起算。综上，吕学花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。
被上诉人吉阳区政府答辩称，一、吕学花的起诉已超过起诉期限。（一）基于房屋征收的行政行为签订的《房屋征收补偿协议书》属于行政合同，不属于平等民事主体之间就权利义务签订的合同，不适用《中华人民共和国合同法》。（二）《房屋征收补偿协议书》是征收行为的组成部分，本身不具有独立性，对《房屋征收补偿协议书》的起诉应视为对征收行为的起诉，应当适用《中华人民共和国行政诉讼法》对于行政行为六个月起诉期限的规定。（三）《房屋征收补偿协议书》没有新出生子女的安置内容，吕学花对此是明知的，即吕学花在签订《房屋征收补偿协议书》时已明知房屋征收行为的内容。（四）（2017）琼行终762号行政判决不能作为吕学花不适用六个月起诉期限的依据。二、《房屋征收补偿协议书》系双方真实意思表示，不存在欺诈、胁迫、显失公平的情形。吉阳区政府严格按照法律规定及东岸棚改项目的安置补偿方案开展征收补偿工作，在签订《房屋征收补偿协议书》前反复向吕学花宣传安置补偿政策，不存在撤销事由。综上，请求依法驳回吕学花的上诉，维持原审裁定。
二审期间，吕学花向本院提交的证据：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，不是三亚市政府对征收补偿安置补充方案的调整，对该证据的证明力不予认可。
二审经审理查明的事实与原审裁定认定的事实一致。
本院认为，本案争议焦点是吕学花的起诉是否超过起诉期限。根据本案查明的事实，吕学花于2016年10月24日与吉阳区住建局签订《房屋征收补偿协议书》。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。本案中，吕学花在签订《房屋征收补偿协议书》时已知晓协议书的内容，故本案应以2016年10月24日作为起诉期限的起算点，吕学花于2017年8月23日提起诉讼已超过六个月的起诉期限，原审法院驳回吕学花的起诉并无不当。
综上，吕学花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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