海南省高级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼行终98号
上诉人（原审原告）：陈家昆，男，1960年10月6日出生，汉族，现住海南省儋州市那大镇人民中路***号。
委托诉讼代理人：李发礼，男，1947年12月25日出生，汉族，现住海南省儋州市民乐花园小区********房。
被上诉人（原审被告）：儋州市人民政府。住所地：海南省儋州市那大镇中兴大街。
法定代表人：朱洪武，该市市长。
委托诉讼代理人：鲍媛，儋州市人民政府法制办工作人员。
上诉人陈家昆因与被上诉人儋州市人民政府（以下简称儋州市政府）不履行拆迁安置补偿职责一案，不服海南省第二中级人民法院（2016）琼97行初382号行政裁定，向本院提起上诉。本院于2017年1月22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。
陈家昆向原审法院诉称，1993年11月23日上午9时许，其位于海南省儋州市那大镇人民大道正大街的三间房屋被儋州市政府强行拆除，导致其一家无处可居、流离失所，造成其合法财产的严重损害。1994年初，陈家昆拿着被强拆房屋的房产证（房字第16**号《房屋所有权证》）找儋州市政府的相关领导要求解决房屋被拆的问题。经儋州市政府派出相关工作人员进行调查，儋州市政府的相关领导同意在原被拆房屋的宅基地处，安排一块121.5平方米的宅基地给陈家昆建房居住，并要求陈家昆要建五层，立面装修，还要符合景观要求，为此陈家昆四处借债建成五层楼房居住至今。陈家昆自1994年初至2009年5月14日期间，不断到儋州市市委、儋州市政府上访，要求解决其房屋于1993年被拆除后的安置补偿问题。直至2016年3月24日，儋州市住房和城乡建设局（以下简称儋州市住建局）才书面答复陈家昆”通过法律途径解决该问题”。陈家昆认为，其对儋州市政府于1993年拆除的三间房屋拥有合法使用权，儋州市政府拆除其房屋应给予其安置补偿，由于陈家昆当时所建房屋的占地面积为334.26平方米，减去儋州市政府于1994年给其安排的121.5平方米的宅基地，还应给其212.76平方米的宅基地或相应补偿款项，以及三间实建面积195.4平方米的房屋被拆的补偿款。由于儋州市政府一直不给予安置补偿，陈家昆遂提起本案诉讼，请求人民法院判令儋州市政府对1993年11月拆除陈家昆的房屋给予安置补偿。
原审法院认为，《中华人民共和国行政诉讼法》第四十六条第二款明确规定：”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”。依照该条规定，因不动产提起行政诉讼的法定最长起诉期限是二十年，这个期限为绝对的不变期限。本案中，陈家昆系因其房屋被儋州市政府于1993年11月23日强制拆除后没有给予安置补偿而提起的行政诉讼，故其应在2013年11月23日之前提起相关行政诉讼。陈家昆现在才提起本案诉讼，明显已经超过法定的最长起诉期限。陈家昆辩称其自1994年初以来一直不间断地要求儋州市政府对其进行安置补偿，但其所提交的证据仅能初步证明其曾向儋州市政府进行过信访，由于二十年的法定最长起诉期限是绝对的不变期限，不能中止、中断，亦不能依照《中华人民共和国行政诉讼法》第四十八条的规定对起诉期限进行扣除或延长，故陈家昆该抗辩主张的理由不能成立。陈家昆还辩称儋州市政府于2009年11月11日作出的市长办公会议纪要《研究解决1993年城市规划建设拆迁历史遗留问题》已同意对其土地和房屋进行补偿，但从原审法院依职权调取的证据来看，儋州市政府作出的上述会议纪要所研究解决的1993年城市规划建设拆迁历史遗留问题所涉及的人员中并没有包括陈家昆，故陈家昆该主张的理由亦不能成立。综上，陈家昆的起诉已超过法定的二十年最长起诉期限，对其起诉应予驳回。由于陈家昆在本案中已丧失行政诉讼的起诉权，其诉求问题应向儋州市政府寻求救济，由儋州市政府予以妥善解决。据此，原审法院裁定驳回陈家昆的起诉。
陈家昆不服原审裁定，上诉请求二审法院撤销原审裁定，指令原审法院继续审理本案。理由是：上诉人的三间房屋于1993年被强拆，自1994年起上诉人一直通过信访要求解决拆迁补偿安置问题。2009年5月14日，上诉人到儋州市政府信访，儋州市政府于2009年11月作出市长会议纪要同意对1993年拆迁中有合法手续的被拆迁人要予以安置补偿。2016年3月，儋州市住建局告知上诉人走法律途径解决拆迁安置补偿问题，上诉人遂提起本案诉讼。根据《中华人民共和国行政诉讼法》第四十八条关于”公民、法人或者其他组织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，被耽误的时间不计算在起诉期限内”的规定，从2009年5月至2016年3月这七年属于不能归属于上诉人自身的原因而被耽误的时间，本案未超过二十年起诉期限。本案与羊艳、朱武诉儋州市政府的案件属于同类型案件，羊艳、朱武的起诉被认定未超过起诉期限，而本案却被裁定驳回起诉，原审法院应继续审理本案。
被上诉人儋州市政府答辩称，原审裁定驳回陈家昆的起诉正确，请求二审法院依法予以维持。
本院认为，本案二审的争议焦点是上诉人陈家昆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。上述法律规定的20年最长保护期限从行政行为作出之日起计算，不存在中断、中止的情形，这个期限是绝对的不变期限。本案中，陈家昆于2016年11月16日提起诉讼请求判令儋州市政府对1993年11月强制拆除其房屋给予安置补偿，明显已经超过法定的最长起诉期限，原审法院以上诉人的起诉超过20年最长起诉期限为由裁定驳回上诉人的起诉并无不当。上诉人主张其自1994年初以来一直不间断地要求儋州市政府对其进行安置补偿，本案起诉期限应自2016年3月24日起算的上诉理由缺乏事实和法律依据，本院不予支持。至于本案与羊艳、朱武诉儋州市政府的案件案情是否一样不属于本案的审理范围，也与本案处理结果无关。综上，原审裁定驳回上诉人的起诉并无不当，应予维持。上诉人的上诉理由缺乏法律依据，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。
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审判长孔琼
审判员叶珊茹
审判员魏文豪
法官助理李宗帅
书记员文明哲
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