海南省第二中级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼97行初113号
海南省第二中级人民法院
行政判决书
（2017）琼97行初113号
原告高忠妍，女，1964年10月7日出生，汉族，住海南省儋州市。
委托代理人朱达人，国信信扬律师事务所律师。
被告海南省人民政府，住所地：海南省海口市国兴大道。
法定代表人刘赐贵，省长。
委托代理人高冰雁，海南省人民政府法制办公室工作人员。
委托代理人王世贤，海南省人民政府法律顾问。
第三人儋州市人民政府，住所地：海南省儋州市中兴大道。
法定代表人朱洪武，市长。
委托代理人王本强，儋州市人民政府法制办公室工作人员。
原告高忠妍不服被告海南省人民政府（简称海南省政府）及第三人儋州市人民政府（简称儋州市政府）行政复议纠纷一案，于2016年12月29日向本院提起行政诉讼。本院于2017年1月22日立案后，依法向被告海南省政府送达了起诉状副本及应诉通知书。本院依法组成合议庭，于2017年2月27日公开开庭审理了本案。原告高忠妍的委托代理人朱达人，被告海南省政府的委托代理人高冰雁、王世贤，第三人儋州市政府的委托代理人王本强到庭参加诉讼。本案现已审理终结。
被诉行政行为：被告海南省政府于2016年12月15日作出琼府复决[2016]362号《不予受理行政复议申请决定书》（简称362号决定书），认为儋府函[1993]453号《关于白马井镇利用塘田国有土地兴建市政基础设施的批复》（简称453号批复）系儋州市政府于1993年9月22日作出，从该批复作出之日起至高忠妍向海南省政府提出行政复议申请时，已超过二十年，遂根据《中华人民共和国行政复议法》（简称《行政复议法》）第十七条第一款和《海南省实施<中华人民共和国行政复议法>办法》（简称《办法》）第二十六条第二款的规定，对高忠妍的复议申请不予受理。
原告高忠妍诉称：453号批复涉及的土地是塘田菜农经济合作社于1962年集体开发建设的蔬菜生产基地，其土地性质依法属于集体所有，并属于受到国家立法保护的基本农田。然而，在利益的驱使下，白马井镇人民政府于1992年以征收土地为由，将上述菜地强行毁坏。为此，原告从1992年不断进行申诉、上访。在此过程中，儋州市政府向原告出示了其作出的453号批复。原告遂于2011年5月27日向海南省第二中级人民法院提起行政诉讼，请求撤销453号批复，但该院和海南省高级人民法院均以原告的诉求不属于行政诉讼的受案范围为由，裁定驳回了原告的起诉。于是，原告在迫于无奈的情况下，只能向海南省政府申请行政复议。但是，海南省政府却罔顾事实，未考虑诉讼时效中断问题，违法作出362号决定书。为维护原告的合法权益，原告特提起行政诉讼，请求人民法院依法撤销被告海南省政府作出的362号决定书，并责令被告海南省政府对原告的行政复议申请依法予以受理。
原告高忠妍向本院提交以下证据：1、362号决定书，证明被诉行政行为违法；2、（2011）海南二中行初字第48号《行政裁定书》；3、（2011）琼立一终字第112号《行政裁定书》；4、国有土地使用证封面；证据2-4证明原告是适格诉讼主体，在法定期限内依法向复议机关申请行政复议，没有超过法律规定的期限。
被告海南省政府辩称：原告高忠妍于2016年12月9日提出行政复议申请，请求撤销儋州市政府作出的453号批复。复议机关经审查查明原告高忠妍请求撤销的453号批复系儋州市政府于1993年9月22日作出，从该批复作出之日起至高忠妍向海南省政府提出行政复议申请时，已超过二十年。复议机关根据《行政复议法》第十七条第一款”行政复议机关收到行政复议申请后，应当在五日内进行审查，对不符合本法规定的行政复议申请，决定不予受理，并书面告知申请人”和《办法》第二十六条第二款”公民、法人或者其他组织不知道行政机关作出的具体行政行为内容的，其申请期限从知道或者应当知道该具体行政行为内容之日起计算。对涉及不动产的具体行政行为从作出之日起超过二十年、其他具体行政行为从作出之日起超过五年申请行政复议的，行政复议机关不予受理”的规定，于2016年12月15日作出362号决定书，并及时送达给原告高忠妍，该被诉362号决定书认定事实清楚，适用法律依据正确，程序合法。综上，请求人民法院依法驳回原告高忠妍的诉讼请求。
被告海南省政府向本院提交以下证据：1、行政复议申请书；2、授权委托书；3、453号批复；证据1-3证明453号批复作出的日期、原告申请复议的日期及其委托的代理人；4、362号决定书；5、邮寄单；证据4-5证明海南省政府依法作出362号决定书，并送达原告。
第三人儋州市政府没有提交书面答辩状，其在庭审中述称：本案原告向海南省政府申请行政复议，是否受理原告的行政复议申请是海南省政府的职权范围，与儋州市政府无关。其他答辩意见与海南省政府的答辩意见一致。
第三人儋州市政府没有向本院提交证据。
经庭审质证，各方当事人对本案证据的质证意见如下：
（一）关于原告高忠妍提交的证据：被告海南省政府对证据1-证据3的真实性、合法性和关联性均无异议，但均对其证明内容有异议，认为原告没有在法定的期限内向其提出行政复议申请；对证据4的关联性有异议，认为该证据与本案无关。第三人儋州市政府的质证意见与海南省政府的质证意见一致。
（二）关于被告海南省政府提交的证据：原告对证据1-证据5的真实性均无异议，但对证据3和证据4的合法性有异议，认为453号批复和362号决定书违法，均应予以撤销。第三人儋州市政府对海南省政府提交的证据均无异议。
本院对上述证据认证如下：
（一）关于原告高忠妍提交的证据：本院认为，原告提交的证据1系本案被诉行政行为，对其真实性予以确认；证据2-3系人民法院生效判决，本院予以确认，作为认定有关案件事实的根据；证据4与本案被诉行政行为没有关联性，本院不予采信。
（二）关于被告海南省政府提交的证据：本院认为，海南省政府提交的证据均来源真实，形式合法，与本案争议事实具有关联性，本院均予以确认，作为认定案件事实的根据。
经审理查明，儋州市政府于1993年9月22日作出453号批复。王大雄等115人于2011年5月27日向本院提起行政诉讼，请求撤销453号批复。本院经审理，于2011年8月1日作出（2011）海南二中行初字第48号行政裁定，认为王大雄等115人的起诉不属于人民法院行政诉讼的受案范围，依法驳回了王大雄等115人的起诉。海南省高级人民法院于2011年12月2日作出（2011）琼立一终字第112号行政裁定，维持了本院作出的（2011）海南二中行初字第48号行政裁定。原告于2016年12月9日向海南省政府提出行政复议申请，请求依法撤销453号批复。海南省政府于2016年12月15日作出362号决定书，认为453号批复系儋州市政府于1993年9月22日作出，从该批复作出之日起至原告向海南省政府提出行政复议申请时，已超过二十年，遂根据《行政复议法》第十七条第一款和《办法》第二十六条第二款的规定，对原告的行政复议申请不予受理。原告不服，遂向本院提起行政诉讼，提出本案诉求。
另查明，原告在提起本案诉讼时，在起诉状上将儋州市白马井镇人民政府列为第三人。经审查，本院认为儋州市白马井镇人民政府与本案被诉行政行为不存在利害关系，不是本案适格的当事人，依法通知其退出了本案诉讼。
本院认为，本案的争议焦点是：362号决定书以原告申请行政复议的时间超过二十年为由，对原告的行政复议申请不予受理是否有事实根据和法律依据。首先，从本案查明的事实来看，儋州市政府作出453号批复的时间是1993年9月22日，而原告申请行政复议的时间是2016年12月9日，可见其申请行政复议的时间明显超过二十年，故362号决定书对该项事实的认定清楚无误。其次，362号决定书对原告的行政复议申请不予受理的法律依据是《办法》，由于该《办法》是现行有效的地方政府规章，适用于海南省行政区域内的行政复议案件，故被告海南省政府以该《办法》第二十六条第二款的规定作为其作出362号决定书的法律依据并无不当。原告认为其从1992年开始一直在进行申诉上访，并于2011年向本院提起行政诉讼请求撤销453号批复，应属时效中断，故认为复议期限应当从2011年起算。但是，根据《办法》第二十六条第二款”公民、法人或者其他组织不知道行政机关作出的具体行政行为内容的，其申请期限从知道或者应当知道该具体行政行为内容之日起计算。对涉及不动产的具体行政行为从作出之日起超过二十年、其他具体行政行为从作出之日起超过五年申请行政复议的，行政复议机关不予受理”的规定，该条款中规定的二十年是最长保护期限，不适用中止、中断的规定，而原告直到2016年12月9日才向海南省政府申请行政复议，明显超过二十年的最长保护期限，故原告的上述主张缺乏法律依据，本院不予支持。综上所述，海南省政府作出362号决定书认定事实清楚，适用法律正确，符合法定程序。原告高忠妍的诉求理由不成立，本院不予支持。依照《中华人民共和国行政诉讼法》第六十九条的规定，判决如下：
驳回原告高忠妍的诉讼请求。
案件受理费人民币50元，由原告高忠妍负担。
如不服本判决，可以在判决书送达之日起十五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。
审判长张德雄
审判员黄海浪
审判员张成信
审判员文魁兴
审判员符波
审判员孔凡勇
审判员郝良存
二○一七年三月八日
法官助理刘欢
书记员买歌豪
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