海南省第二中级人民法院
p t ; ” > 行 政 判 决 书
（2017）琼97行初107号
海南省第二中级人民法院
行政判决书
（2017）琼97行初107号
原告郑建玲，女，1971年5月6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。
原告郑建玲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。原告郑建玲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]356号《不予受理行政复议申请决定书》（简称356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郑建玲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，对郑建玲的复议申请不予受理。
原告郑建玲诉称：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356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356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。
原告郑建玲向本院提交以下证据：1、356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：原告郑建玲于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郑建玲请求撤销的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郑建玲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356号决定书，并及时送达给原告郑建玲，该被诉356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郑建玲的诉讼请求。
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、356号决定书；5、邮寄单；证据4-5证明海南省政府依法作出356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）关于原告郑建玲提交的证据：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356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）关于原告郑建玲提交的证据：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356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：356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356号决定书对该项事实的认定清楚无误。其次，356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356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356号决定书认定事实清楚，适用法律正确，符合法定程序。原告郑建玲的诉求理由不成立，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：
驳回原告郑建玲的诉讼请求。
案件受理费人民币50元，由原告郑建玲负担。
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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[{法规名称:\'《中华人民共和国侵权责任法》\',Items:[{法条名称:\'第二条第一款\',法条内容:\' 第二条
侵害民事权益，应当依照本法承担侵权责任。
本法所称民事权益，包括生命权、健康权、姓名权、名誉权、荣誉权、肖像权、隐私权、婚姻自主权、监护权、所有权、用益物权、担保物权、著作权、专利权、商标专用权、发现权、股权、继承权等人身、财产权益。
\'},{法条名称:\'第三条\',法条内容:\'
第三条 被侵权人有权请求侵权人承担侵权责任。
\'},{法条名称:\'第六条第一款\',法条内容:\' 第六条
行为人因过错侵害他人民事权益，应当承担侵权责任。
根据法律规定推定行为人有过错，行为人不能证明自己没有过错的，应当承担侵权责任。
\'},{法条名称:\'第十五条第一款\',法条内容:\' 第十五条
承担侵权责任的方式主要有：
（一）停止侵害；
（二）排除妨碍；
（三）消除危险；
（四）返还财产；
（五）恢复原状；
（六）赔偿损失；
（七）赔礼道歉；
（八）消除影响、恢复名誉。
以上承担侵权责任的方式，可以单独适用，也可以合并适用。
\'},{法条名称:\'第十六条\',法条内容:\' 第十六条
侵害他人造成人身损害的，应当赔偿医疗费、护理费、交通费等为治疗和康复支出的合理费用，以及因误工减少的收入。造成残疾的，还应当赔偿残疾生活辅助具费和残疾赔偿金。造成死亡的，还应当赔偿丧葬费和死亡赔偿金。
\'},{法条名称:\'第二十六条\',法条内容:\'
第二十六条
被侵权人对损害的发生也有过错的，可以减轻侵权人的责任。
\'}]},{法规名称:\'《最高人民法院关于审理人身损害赔偿案件适用法律若干问题的解释》\',Items:[{法条名称:\'第十七条第一款\',法条内容:\'
第十七条
受害人遭受人身损害，因就医治疗支出的各项费用以及因误工减少的收入，包括医疗费、误工费、护理费、交通费、住宿费、住院伙食补助费、必要的营养费，赔偿义务人应当予以赔偿。
受害人因伤致残的，其因增加生活上需要所支出的必要费用以及因丧失劳动能力导致的收入损失，包括残疾赔偿金、残疾辅助器具费、被扶养人生活费，以及因康复护理、继续治疗实际发生的必要的康复费、护理费、后续治疗费，赔偿义务人也应当予以赔偿。
受害人死亡的，赔偿义务人除应当根据抢救治疗情况赔偿本条第一款规定的相关费用外，还应当赔偿丧葬费、被扶养人生活费、死亡补偿费以及受害人亲属办理丧葬事宜支出的交通费、住宿费和误工损失等其他合理费用。
\'},{法条名称:\'第十九条第一款\',法条内容:\'
第十九条
医疗费根据医疗机构出具的医药费、住院费等收款凭证，结合病历和诊断证明等相关证据确定。赔偿义务人对治疗的必要性和合理性有异议的，应当承担相应的举证责任。
医疗费的赔偿数额，按照一审法庭辩论终结前实际发生的数额确定。器官功能恢复训练所必要的康复费、适当的整容费以及其他后续治疗费，赔偿权利人可以待实际发生后另行起诉。但根据医疗证明或者鉴定结论确定必然发生的费用，可以与已经发生的医疗费一并予以赔偿。
\'},{法条名称:\'第二十条第一款\',法条内容:\'
第二十条 误工费根据受害人的误工时间和收入状况确定。
误工时间根据受害人接受治疗的医疗机构出具的证明确定。受害人因伤致残持续误工的，误工时间可以计算至定残日前一天。
受害人有固定收入的，误工费按照实际减少的收入计算。受害人无固定收入的，按照其最近三年的平均收入计算；受害人不能举证证明其最近三年的平均收入状况的，可以参照受诉法院所在地相同或者相近行业上一年度职工的平均工资计算。
\'},{法条名称:\'第二十一条第一款\',法条内容:\'
第二十一条 护理费根据护理人员的收入状况和护理人数、护理期限确定。
护理人员有收入的，参照误工费的规定计算；护理人员没有收入或者雇佣护工的，参照当地护工从事同等级别护理的劳务报酬标准计算。护理人员原则上为一人，但医疗机构或者鉴定机构有明确意见的，可以参照确定护理人员人数。
护理期限应计算至受害人恢复生活自理能力时止。受害人因残疾不能恢复生活自理能力的，可以根据其年龄、健康状况等因素确定合理的护理期限，但最长不超过二十年。
受害人定残后的护理，应当根据其护理依赖程度并结合配制残疾辅助器具的情况确定护理级别。
\'},{法条名称:\'第二十二条\',法条内容:\'
第二十二条
交通费根据受害人及其必要的陪护人员因就医或者转院治疗实际发生的费用计算。交通费应当以正式票据为凭；有关凭据应当与就医地点、时间、人数、次数相符合。
\'},{法条名称:\'第二十三条第一款\',法条内容:\'
第二十三条 住院伙食补助费可以参照当地国家机关一般工作人员的出差伙食补助标准予以确定。
受害人确有必要到外地治疗，因客观原因不能住院，受害人本人及其陪护人员实际发生的住宿费和伙食费，其合理部分应予赔偿。
\'},{法条名称:\'第二十四条\',法条内容:\'
第二十四条
营养费根据受害人伤残情况参照医疗机构的意见确定。
\'}]},{法规名称:\'《中华人民共和国民事诉讼法》\',Items:[{法条名称:\'第六十四条\',法条内容:\'第六十四条
系统尚未收录或引用有误
\'},{法条名称:\'第一百四十四条\',法条内容:\'第一百四十四条
系统尚未收录或引用有误
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