海南省高级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼行终1619号
上诉人（原审原告）：文昌市文城镇横山村民委员会姓赵村民小组，住所地海南省文昌市文城镇横山村民委员会姓赵村。
负责人：赵仕昌，该村民小组组长。
被上诉人（原审被告）：文昌市人民政府，住所地海南省文昌市清澜开发区市政府大楼。
法定代表人：王晓桥，该市市长。
委托诉讼代理人：陈廷云，文昌市人民政府法制办副主任科员。
委托诉讼代理人：伍一叶，海南外经律师事务所律师。
原审第三人：地方国营文昌市水泥厂，住所地海南省文昌市文城镇横山坡。
法定代表人：林明夫，该厂厂长。
委托诉讼代理人：陈明新，男，1958年9月12日出生，汉族，住海南省文昌市文城镇城新里**号。
上诉人文昌市文城镇横山村民委员会姓赵村民小组（以下简称姓赵村民小组）因与被上诉人文昌市人民政府（以下简称文昌市政府）以及原审第三人地方国营文昌市水泥厂（以下简称文昌市水泥厂）土地行政登记一案，不服海南省第一中级人民法院（2017）琼96行初92号行政裁定，向本院提起上诉。本院于2017年10月11日立案后依法组成合议庭对本案进行了审理，现已审理终结。
一审法院经审理查明，文昌市水泥厂生产车间及原料晒场用地位于海南省文昌市××镇）北侧，面积22985.177㎡。1995年8月，文昌市水泥厂就该22985.177㎡土地申请登记发证。同年12月1日，文昌市政府根据文昌市水泥厂的申请以及原文昌市土地管理局对该宗土地进行地籍调查后所作”准予登记”的审核意见，给文昌市水泥厂颁发了文国用（95）字第1100113号《国有土地使用证》（以下简称第1100113号《土地证》）。姓赵村民小组不服该颁证行为，于2017年5月10日以该22985.177㎡土地中有8.449亩土地属其集体所有，文昌市政府未办理征用手续就将该8.449亩土地登记发证给文昌市水泥厂侵犯其合法权益为由，向海南省人民政府提出行政复议申请。海南省人民政府经审查，于2017年5月17日作出琼府复决[2017]71号《不予受理行政复议决定书》，决定不予受理姓赵村民小组的行政复议申请。姓赵村民小组于2017年5月27日收到该《不予受理行政复议决定书》后，于同年6月9日向一审法院提起行政诉讼，请求判决撤销文昌市政府给文昌市水泥厂颁发第1100113号《土地证》的行为。
一审法院认为，土地属不动产的范畴，文昌市政府就文昌市水泥厂的生产车间和原料晒场用地给文昌市水泥厂颁发第1100113号《土地证》的行为，是文昌市政府就不动产权属实施登记确认的行为。因此，姓赵村民小组对文昌市政府给文昌市水泥厂颁发第1100113号《土地证》的行为提起的诉讼，属因不动产提起的诉讼。《中华人民共和国行政诉讼法》第四十六条第二款规定：”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，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”。根据本案查明的事实，文昌市政府于1995年12月1日给文昌市水泥厂颁发了第1100113号《土地证》，姓赵村民小组于2017年6月9日才对该颁证行为提起诉讼，明显超过了法定的20年起诉期限。故对姓赵村民小组不服文昌市政府给文昌市水泥厂颁发第1100113号《土地证》的行为而提起的诉讼，依法不应受理，已经受理的，依法应裁定驳回起诉。综上所述，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，一审法院裁定驳回姓赵村民小组的起诉。
姓赵村民小组不服一审裁定，上诉称，本案未超过起诉期限，且不属于上诉人自身原因导致的，一审裁定以超过20年的起诉期限驳回起诉明显不当。一、上诉人的集体土地所有权并未因文昌市政府为原审第三人颁发土地使用证而丧失，上诉人随时可以针对其享有所有权范围内的土地使用权主张权利。二、本案存在因不属于上诉人自身的原因耽误起诉期限的情形，被耽误的时间不计算在起诉期限内。涉案土地自土改至今一直由上诉人所有和经营管理，从上世纪80年代借给原审第三人使用，上诉人于2008年起就开始要求原审第三人的主管部门归还土地，但相关政府部门至今没有作出答复处理，直至2017年4月国土部门才在其答复书中告知上诉人发证的事实。三、被上诉人并未举证证明涉案土地使用证是何时送达给原审第三人的，因此，本案无法证实行政行为对外作出及完成时间，也就无法界定上诉人的起诉是否超过20年的起诉期限。四、被诉行政行为的违法状态一直存续并侵犯上诉人的集体土地所有权，行政机关在上诉人要求纠正该违法行为时才于2017年4月告知上诉人通过司法途径解决，上诉人的起诉并未超过起诉期限。五、被上诉人的颁证行为认定事实不清，依据不足，程序严重违法。综上，一审裁定认定事实不清，适用法律错误，请求二审法院撤销一审裁定，依法改判撤销第1100113号《土地证》。
被上诉人文昌市政府答辩称，一、上诉人的起诉超过20年最长法定起诉期限，一审裁定认定事实清楚，适用法律正确。本案被诉颁证行为是1995年12月1日作出的，距今已有21年。上诉人对被诉颁证行为不服，应最迟在2015年12月1日前提起行政诉讼，而上诉人直至2017年才提起行政诉讼，已经超过20年最长起诉期限。二、上诉人主张其起诉未超过起诉期限的上诉理由不能成立。第一，《行政诉讼法》第四十六条第二款规定的20年是因不动产提起行政诉讼案件的最长起诉期限，该期限不可中断且不可中止，该期限从具体行政行为作出之日起计算，不是从当事人知道具体行政行为内容之日起计算。第二，第1100113号《土地证》清楚记载颁证时间，文昌市政府无需再提供其他证据。文昌市水泥厂于1996年1月19日提交法定代表人身份证明的行为不会导致涉案颁证行为没有实施完毕的法律后果。第三，文昌市政府没有将涉案土地使用权登记情况告知上诉人的义务，上诉人可自行到土地管理部门进行查询，本案不存在不属于上诉人自身原因耽误起诉期限的情形。第四，本案判断上诉人是否享有诉权的事实是涉案颁证行为作出的时间，而不是上诉人所主张的集体土地所有权是否因征收而丧失。第五，连续性侵权行为对民事案件诉讼时效的影响不能适用于行政诉讼的起诉期限。综上，请求二审法院驳回上诉人的上诉请求，维持一审裁定。
原审第三人文昌市水泥厂陈述称，一、上诉人的起诉明显超过20年最长法定起诉期限。二、上诉人的村民持有的1953年《土地房产所有证》不能作为确定第1100113号《土地证》项下的8.449亩土地属上诉人集体所有的依据。
本院对一审法院查明的事实予以确认。
本院认为，本案被诉行政行为是文昌市政府为文昌市水泥厂颁发第1100113号《土地证》的行为，本案的争议焦点是上诉人姓赵村民小组提起本案诉讼是否超过法定起诉期限。《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。”根据上述规定，因不动产提起行政诉讼的最长保护期限是20年，该20年最长保护期限从行政行为作出之日起计算，并不以相对人或利害关系人知道或应当知道行政行为内容为标准，且该期限是绝对的不变期限，不存在中断、中止、扣除、延长的情形。也就是说，无论相对人或利害关系人何时知道被诉行政行为的内容，或者因其他原因耽误起诉，从行政行为作出之日起超过20年，即丧失起诉的权利，不能再寻求司法救济。本案属于因不动产提起的诉讼，姓赵村民小组于2017年6月9日向一审法院诉请撤销文昌市政府于1995年12月1日为文昌市水泥厂颁发的第1100113号《土地证》，已经超过法定的最长起诉期限。《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规定，超过法定起诉期限且无正当理由的，已经立案的，应当裁定驳回起诉。因此，一审裁定以姓赵村民小组的起诉超过20年最长起诉期限为由驳回其起诉并无不当，应予维持。姓赵村民小组主张其起诉并未超过起诉期限的上诉理由不能成立，本院不予支持。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。
审判长孔琼
审判员魏文豪
审判员王山元
二〇一七年十一月六日
法官助理周玉贝
书记员王绛
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