海南省三亚市中级人民法院
p t ; ” > 行 政 裁 定 书
（2017）琼02行终69号
上诉人（一审起诉人）：三亚凤凰豪生海岸酒店，住所地：三亚市天涯区海坡村。
经营者：刘崇华，男，1955年12月28日出生，汉族，现住重庆市九龙坡区科园三路*号附*号8-4。
委托诉讼代理人：戴明俊，男，1970年1月16日出生，系三亚凤凰豪生海岸酒店员工。
上诉人三亚凤凰豪生海岸酒店因违法建筑拆除行政处罚纠纷一案，不服三亚市城郊人民法院(2017)琼0271行初206号民事裁定，向本院提起上诉。本院依法组成合议庭对本案进行了审理。
三亚凤凰豪生海岸酒店上诉请求：撤销（2017）琼0271行初206号行政裁定书，指令对本案立案审理。上诉人认为，一审法院以起诉超出法定起诉期限为由，裁定不予受理是错误的，不能成立。本案被诉的三亚市综合行政执法局三综执（凤凰）罚决字[2011]第354号《行政处罚决定书》涉及到上诉人经营使用的不动产建筑物,应当适用行政诉讼法第46条第2款”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，......人民法院不予受理”的规定，上诉人提起诉讼的期限至今不足二十年，一审法院以上诉人起诉超过6个月起诉期限裁定不予受理，适用法律不当。
其次，本案诉讼标的为确认行政行为无效，对无效行政行为确认之诉，行政诉讼法及司法解释均没有其诉讼期限作限制性规定，因此，本案不应适用行政诉讼法第46条第一款的规定。同时，无效行政行为自始无效，没有公定力、确定力、拘束力。无效的行政行为必然会产生以下法律后果：行政相对人可不受该行为的约束，不履行该行为确定的任何义务，并且对此种不履行不承担法律责任，可以在任何时间请求法院宣布该行为无效。我国新行政诉讼法确立了增加了确定行政行为无效这一诉讼请求，如果再对此设定起诉期限予以限制，会让这类诉讼与撤销行政行为之诉没有任何区别。因此，确认行政行为无效的诉讼是不受起诉期限的限制，本案不属于行政诉讼法规定裁定不予受理的情形，一审法院裁定不予受理本案于法无据。请求二审法院依法撤销一审裁定，指令一审法院审理。
本院认为：上诉人三亚凤凰豪生海岸酒店因对三亚市综合行政执法局作出的三综执（凤凰）罚决字[2011]第354号《行政处罚决定书》不服，向一审法院提起行政诉讼，请求判决确认该行政行为无效。认为无效的行政行为自始无效，没有公定力、确定力和拘束力，行政相对人不受该行为的约束。未被实施的无效行政行为事实上对行政相对人不产生羁束力，与行政相对人没有法律上利害关系，不能成为行政诉讼诉的标的。本案事实上与上诉人具有法律上利害关系的行政行为为三亚市综合行政执法局实施的强制拆除行为，而该强拆行为上诉人已经通过一审法院（2014）城行初字第181号和（2015）三亚行初字第131号两个案件的行政诉讼获得了救济。本案上诉人再次提起行政诉讼请求法院确认一个与其没有法律上利害关系的行政行为无效，不符合《中华人民共和国行政诉讼法》第四十九条第一项”提起诉讼应当符合下列条件:（一）原告是符合本法第二十五条规定的公民、法人或者其他组织”的规定，本案应不予受理。另外，上诉人于2014年6月26日就已经知道该《行政处罚决定书》的存在，根据《中华人民共和国行政诉讼法》第四十六条”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。”的规定，上诉人于2017年8月8日提起行政诉讼，已超过法定六个月的起诉期限，应裁定不予受理。上诉人的上诉主张没有法律依据。
综上，一审法院裁定不予受理上诉人的起诉，处理结果正确，应予维持。上诉人的上诉理由不成立，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）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。
审判长李宝鹏
审判员左家锋
审判员林元贵
二〇一七年十二月二十日
法官助理陈永华
书记员邢华云附：相关法律条文
《中华人民共和国行政诉讼法》
第八十九条人民法院审上诉案件，按照下列情形，分别处理：
(一)原判决、裁定认定事实清楚，适用法律、法规正确的，判决或者裁定驳回上诉，维持原判决、裁定；
(二)原判决、裁定认定事实错误或者适用法律、法规错误的，依法改判、撤销或者变更；
(三)原判决认定基本事实不清、证据不足的，发回原审人民法院重审，或者查清事实后改判。
(四)原判决遗漏当事人或者违法缺席判决等严重违反法定程序的，裁定撤销原判决，发回原审人民法院重审。
原审人民法院对发回重审的案件作出判决后，当事人提起上诉的，第二审人民法院不得再次发回重审。
人民法院审理上诉案件，需要改变原审判决的，应当同时对被诉行政行为作出判决。
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