海南省三亚市中级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼02行终53号
上诉人（原审原告）罗朝珍，现住三亚市。
委托代理人梁海雄，海南邦威律师事务所律师。
委托代理人张晓晴，海南邦威律师事务所律师。
被上诉人（原审被告）三亚市综合行政执法局，住所地三亚市凤凰路212号。
法定代表人王宏宁，该局局长。
委托代理人林祖才，海南祥瑞律师事务所律师。
委托代理人罗政伟，该局工作人员。
上诉人罗朝珍因诉被上诉人三亚市综合行政执法局（以下简称市执法局）规划行政强制纠纷一案，不服三亚市城郊人民法院（2017）琼0271行初11号行政裁定，向本院提起上诉。本院依法组成合议庭，公开开庭审理了本案。本案审理期间，因本案与本院同期受理的上诉人高清弟等人分别诉被上诉人市执法局规划行政强制纠纷及行政赔偿纠纷9案的上诉请求、事实与理由相类同，本院在征得各方当事人同意后将该10个案件合并审理。上诉人罗朝珍委托代理人梁海雄、张晓晴，被上诉人市执法局委托代理人林祖才、罗政伟到庭参加诉讼。本案现已审理终结。
原审法院认为，罗朝珍自称其于1994年7月在临春村第三小组自家祖居宅基地上重建的一栋三层住宅楼房，2014年4月22日被市执法局强制拆除，其在2014年4月22日就已知晓市执法局作出强制拆除房屋的行政行为。《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，罗朝珍不服该强制拆除房屋的行政行为而起诉，应当自2014年4月22日起六个月内提出，其于2016年11月11日提出诉讼，已超过六个月的起诉期限规定。本案中，罗朝珍在提起行政诉讼的同时一并提出行政赔偿请求。《最高人民法院关于审理行政赔偿案件若干问题的规定》第二十三条第一款规定，公民、法人或者其他组织在提起行政诉讼的同时一并提出行政赔偿请求的，其起诉期限按照行政诉讼起诉期限的规定执行，罗朝珍的起诉期限应按照行政诉讼起诉期限的规定执行。综上所述，罗朝珍的起诉已超过法定起诉期限，对已超过法定起诉期限的起诉，已经受理的应依法予以驳回起诉。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)项的规定，裁定：驳回罗朝珍的起诉；案件受理费50元退还罗朝珍。
上诉人罗朝珍上诉称：2014年4月21日，有关部门未经任何口头或书面通知，到临春村对其房屋进行测量；2014年4月22日，未经任何法律程序，对其房屋实施强制拆除，其不知实施强制拆除行为的行政机关。原审法院认定上诉人在房屋被强制拆除时即已知晓，无事实和法律依据。2014年5至6月，上诉人与临春村其他被强拆房屋的村民多次到三亚市政府和被上诉人处上访，因三亚市撤镇设区，各行政机关相互推诿，上诉人仍不知谁是强拆机关。2014年9月至10月，上诉人到法院咨询起诉事宜均因被告不明确不能立案。2015年春节后，上诉人到市执法局上访未果；2016年9月初，上诉人才得知市执法局是强拆机关。2016年11月11日，上诉人向三亚市中级人民法院提起本案诉讼，自知晓强拆机关不足两个月，未超过六个月的诉讼时效。综上，原审法院将行政机关相互推诿导致延误的期间计算为诉讼时��，认定上诉人已超过法定起诉期限无事实和法律依据。上诉人请求撤销原审裁定，判决被上诉人市执法局强制拆迁其房屋的行为违法，并由被上诉人承担律师服务费和一二审案件受理费。
被上诉人市执法局辩称，原审法院作出的裁定认定事实清楚，适用法律正确，上诉人的上诉理由不能成立。上诉人的房屋在2014年4月22日被市执法局拆除，上诉人在2014年4月22日就知晓房屋被拆的事实，根据行政诉讼法的有关规定，上诉人的起诉已超过法定的起诉期限，请求二审法院依法驳回上诉人的上诉请求。
二审审理查明，罗朝珍系临春村原籍居住居民，于1994年7月在该村三组自家宅基地上建设一栋三层框架结构房屋，建筑面积为578.92㎡。2014年4月18日，市执法局下洋田中队工作人员巡查发现上述建筑未取得合法报建手续，属于违章建筑；同日，制作《现场检查笔录》和《违建户主违章建筑现场图》，向”违建户主”下发《责令停止违法行为通知书》和《责令（限期）改正通知书》，并在上述通知书的送达回执上记载”当事人拒签，我执法人员采取留置送达，并拍照取证”字样。2014年4月21日，市执法局���”违建业主”下发《强制执行决定书》，并在送达回执上记载”当事人拒签，我执法人员采取留置送达，并拍照取证”字样；同日，市执法局工作人员对罗朝珍的上述房屋进行丈量和登记。2014年4月22日，市执法局将罗朝珍的上述房屋拆除，并制作《拆除违法建筑现场图片说明》。
另查明，2014年4月22日，市执法局对罗朝珍、高清弟等26户临春村民的房屋实施强制拆除。2014年9月22日，上述村民向三亚市河东区管委会提交《关于被拆除村民房屋的补偿请求》。此后，高清弟等���向吉阳区政府、市执法局等多个部门进行上访，2016年9月28日，市执法局作出《受理告知书》。2016年10月10日，三亚市吉阳区项目推进服务中心作出《关于高清第信访情况的处理意见》，认为其房屋不在其征收补偿范围之内。2016年11月11日，罗朝珍向本院提起规划行政强制纠纷一案诉讼的同时一并提起行政赔偿请求。经本院释明，罗朝珍将起诉书分成了违法行政起诉书和行政赔偿起诉书。罗朝珍将三亚市政府和市执法局一并列为被告，后因三亚市政府不是适格被告，其于2016年12月26日撤回对三亚市政府的起诉，本院予以准许并将该二案一并移送至原审法院三亚市城郊人民法院。2017年1月19日，三亚市城郊人民法院立案受理。
本院认为，《最高人民法院关于执行<中华人民共和国行政诉讼法>若干问题的解释》第四十一条规定，行政机关作出行政行为时，未告知公民、法人或者其他组织诉权或者起诉期限的，起诉期限从其知道或者应当知道行政行为内容之日起最长不得超过二年。《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》第二十六条规定，2015年5月1日前起诉期限尚未届满的，适用修改后的行政诉讼法关于起诉期限的规定。即：2015年5月1日行政诉讼法实施之后，当事人对修改后的行政诉讼法实施之前的行政行为提起行政诉讼的，人民法院首先要审查至2015年5月1日，其起诉期限是否届满。超过法定起诉期限的，人民���院不再立案受理；未超过法定起诉期限的，按照修改后的行政诉讼法规定的起诉期限计算。根据法不溯及既往原则，人民法院应当适用修改前的行政诉讼法及其司法解释，对当事人的起诉期限至2015年5月1日是否届满进行审查。至2015年5月1日，当事人起诉期限尚未届满，剩余起诉期限超过修改后的行政诉讼法规定的六个月期限的，以六个月为限；剩余期限不足六个月的，原则上以剩余起诉期限为限。
本案中，罗朝珍对市执法局强制拆除其房屋的行为不服起诉，应当自知道其房屋被强制拆除之日起计算起诉期限，2014年4月22日，其已经知道房屋被拆除的行政行为内容，市执法局未告知诉权和起诉期限，适用二年起诉期限。同时，本案起诉期限跨越2015年5月1日，对新法实施后的起诉期限仅保护法定六个月的期限。因此，罗朝珍对市执法局提起规划行政强制纠纷一案诉讼的起诉期限应当至2015年10月31日届满，其于2016年11月18日提起本案行政诉讼，已超过法定起诉期限。罗朝珍的上诉理由缺乏法律依据，本院不予支持。原审裁定认定事实清楚，适用法律正确，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。
审判长王娜
审判员黎少云
审判员张维青
二〇一七年八月二十三日
书记员邱海惠
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