海南省高级人民法院
p t ; ” > 行 政 判 决 书
(2017)琼行终1693号
上诉人（原审原告）郑泽奇，男，1949年6月16日出生，汉族，住海南省海口市。
被上诉人（原审被告）海南省政府国有资产监督管理委员会，住所地海南省海口市白龙南路10号琼苑宾馆一号楼。
法定代表人倪健，主任。
委托代理人周晓群，海南省政府国有资产监督管理委员会政策法规处副主任科员。
委托代理人许彩霞，广东深天成（文昌）律师事务所律师。
上诉人郑泽奇因其诉被上诉人海南省政府国有资产监督管理委员会（以下简称省国资委）不履行法定职责一案，不服海南省海口市中级人民法院（2017）琼01行初725号行政判决，向本院提起上诉。本院依法组成合议庭，对本案进行了审理，现已审理终结。
省国资委于2017年2月24日作出《海南省政府国有资产监督管理委员会关于郑泽奇信访事项的答复意见书》，内容如下：”省汽配厂（全称海南省汽车制配厂，以下简称省汽配厂）于2007年经我委原则同意关闭立项，2008年6月省人社厅（全称海南省人力资源和社会保障厅，以下简称省人社厅）审查批复职工安置方案，但因其改制和资产处置方案未获批准而无法实施。2012年省汽配厂重新制订职工安置方案，经职工大会审议表决通过，2013年经我委初审和省人社厅批复，通过资产处置筹集资金正式实施。经核查，程序和内容均符合法律法规规定。在省汽配厂职工安置方案中具体核算您个人的工伤待遇安置用有误。我委已发文责成企业进行整改，依法合规地重新核算，按照规定程序报批执行。”郑泽奇不服，于2017年4月19日向原审法院提起诉讼，请求：1.撤销《海南省政府国有资产监督管理委员会关于郑泽奇信访事项的答复意见书》，并责令省国资委重新作出处理；2.判决省国资委尽快履行法定职责，监督省汽配厂依法向其支付国家规定的工伤保险待遇和经济补偿金、应欠的工资、精神损害抚慰金，共计：364537.40元+10万元=464537.40元；3.责令省国资委监督省汽配厂依法补缴其社会保险费；4.依法对省汽配厂施行改制职工安置截止日为2012年12月31日的有关文件：《海南省汽配厂关于请求审查〈企业改制方案〉、〈职工安置方案〉的请示》（海厂[2012]019号）、《海南省政府国有资产监督管理委员会关于省汽配厂职工安置方案初审意见的函》（琼国资函[2013]62号）、《海南省人力资源和社会保障厅关于海南省汽配厂职工安置方案的复函》（琼人社函[2013]304号）的合法性进行审查。
原审查明，郑泽奇原是省汽配厂的职工。2007年，省汽配厂经省国资委批复同意进行关闭立项，之后进行改制。同年，省汽配厂制定了《职工安置方案》，确定计算经济补偿金的基准日为2007年12月31日，郑泽奇为在册职工列入安置范围。之后，该《职工安置方案》因故未能实施。2009年，郑泽奇退休。2012年12月11日，省汽配厂重新制定了《企业改制方案》和《职工安置方案》，并对上述方案进行公示。2012年12月23日，省汽配厂召开职工大会讨论通过了该《职工安置方案》。之后，经审批，该《职工安置方案》获得实施，因郑泽奇已退休，省汽配厂不向其发放工作医疗补助金和伤残就业补助金。郑泽奇因对改制安置以及工伤待遇等问题的处理有异议，于2016年4月17日向省国资委寄交《关于海南省汽配厂改制的行政行为涉及郑泽奇工伤待遇问题进行行政处理的申请书》，明确要求省汽配厂向其支付有关伤残补助金、经济补偿金等款项的具体数额，并要求省国资委履行监管职责，就有关问题进行行政处理并给予答复。因郑泽奇认为省国资委对其申请不履行法定职责，遂于2016年5月向原审法院提起行政诉讼，请求判令省国资委尽快履行法定职责，负起监管。原审法院于2016年8月26日作出（2016）琼01行初120号行政判决，驳回郑泽奇的诉讼请求。郑泽奇不服，向本院提起上诉。本院于2016年12月15日作出（2016）琼行终501号行政判决，撤销原审法院（2016）琼01行初120号行政判决，责令省国资委于判决生效后两个月内对郑泽奇于2016年4月17日寄交的《关于海南省汽配厂改制的行政行为涉及郑泽奇工伤待遇问题进行行政处理的申请书》中涉及的申请事项作出处理。之后，省国资委经调查核实，于2017年2月24日向郑泽奇发出《海南省政府国有资产监督管理委员会关于郑泽奇信访事项的答复意见书》，认为经核查，省汽配厂改制重新制订职工安置方案程序和内容均符合法律法规规定，但具体核算郑泽奇个人的工伤待遇安置费用有误，省国资委已发文责成企业进行整改，依法合规地重新核算，按照规定程序报批执行。同日，省国资委针对调查中发现的问题通知海南省金林投资集团有限公司督导海南金城国有资产经营管理有限责任公司（以下简称金城公司）及省汽配厂进行整改。
原审认为，省国资委作为国有企业监督管理部门，对国有企业负有监督管理的职责，郑泽奇认为省国资委未依法履行监管职责侵害其合法权益，有权提起行政诉讼。本案中，（2016）琼行终501号行政判决，责令省国资委对郑泽奇于2016年4月17日寄交的《关于海南省汽配厂改制的行政行为涉及郑泽奇工伤待遇问题进行行政处理的申请书》中涉及的申请事项作出处理后，省国资委已经依法进行调查并答复郑泽奇。针对调查中发现的问题，省国资委还通知责成海南省金林投资集团有限公司进行整改，整改仍在进行当中，并未存在行政不作为的情形，郑泽奇主张省国资委未履行法定职责，没有事实和法律依据，依法不予支持。关于郑泽奇请求对《海南省汽配厂关于请求审查〈企业改制方案〉、〈职工安置方案〉的请示》（海厂[2012]019号）、《海南省政府国有资产监督管理委员会关于省汽配厂职工安置方案初审意见的函》（琼国资函[2013]62号）、《海南省人力资源和社会保障厅关于海南省汽配厂职工安置方案的复函》（琼人社函[2013]304号）等文件的合法性进行审查问题，因上述文件不属于人民法院在行政诉讼中附带审查规范性文件的范围，依法不予处理。综上，依照《中华人民共和国行政诉讼法》第六十九条、《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》第五十六条第（一）项之规定，判决驳回郑泽奇的诉讼请求。案件受理费50元，由郑泽奇负担。
上诉人郑泽奇上诉称，一、原审法院工作效率不高。郑泽奇于2017年4月7日向原审法院递交了起诉状和相关资料，直到4月19日才接到同意立案的电话。原审法院于2017年8月31日作出原审判决，直到9月30日上午11点钟才电话通知郑泽奇前往法院领取。希望原审法院提高工作效率，努力让人民群众在每个司法案件中感受到公平正义。二、省国资委未按照法定程序履行审核职责，构成行政不作为。金城公司于2012年12月28日又以省汽配厂的名义再次进行改制，目的是把原2007年12月31日劳动合同终止日期变成2012年12月31日。原有列入改制范围的815名职工，金城公司只通知能多拿5年经济补偿金的276名职工开会和表决，造成这部分人多拿约235万元经济补偿金。省国资委作为国有企业监管和改制主导部门作出的琼国资函（2013）62号批复违反《劳动合同法实施条例》第十三条，将郑泽奇改变为退休人员，造成其无法享受工伤保险待遇，被诉答复意见书直接侵害了其合法权益。三、2400万元社保费已于2013年向省社保局缴清，然而2017年4月5日省社保查询业务系统显示无单位参加工伤保险记录，故请依法审查琼府（2013）28号通知，监督补缴社会保险费。综上，请求：1.撤销原判决；2.支持其原审诉讼请求。
被上诉人省国资委答辩称，一、省国资委已经履行法定职责，郑泽奇要求省国资委履行法定职责的请求明显与事实不符。郑泽奇原以信访件的形式要求省国资委就其因企业改制过程中的待遇问题进行答复，省国资委委托的托管企业已经进行答复。郑泽奇认为该答复的主体不适合，遂提起行政诉讼，原审法院认定该案不属于行政案件受案范围，驳回郑泽奇的起诉。郑泽奇提起上诉后，本院作出（2016）琼行终501号行政判决，认定该案不属于信访案件，托管企业的答复不能代替省国资委的答复，判决省国资委就郑泽奇的信访内容作出处理。省国资委收到判决不久即对郑泽奇的信访事项进行了答复，并通知托管企业重新核算。二、郑泽奇主张其应享有的工伤待遇既没有事实和法律依据，也不是省国资委的职责范围。省汽配厂是否应给予郑泽奇工伤保险待遇，该诉请的被告不应为国资委，企业是否给予职工工伤保险待遇应由社会保险机构核定，郑泽奇不符合企业改制过程中应享受工伤待遇的相关规定。三、郑泽奇提出的大部分问题均与本案无关，与其权利能否得到保障无关，不属于本案审理范围。综上，请驳回上诉，维持原判决。
本院查明的事实与原审判决认定事实一致。
本院认为，本案争议焦点是省国资委作为国有企业监督管理部门，有无依法履行对省汽配厂改制过程的监督管理职责。根据本案查明事实，省汽配厂于2007年经省国资委原则同意关闭立项，2008年6月省人社厅审查批复《职工安置方案》，但因故未能实施。2012年省汽配厂重新制订《职工安置方案》，经职工大会审议表决通过，2013年经省国资委初审和省人社厅批复，通过资产处置筹集资金正式实施。因郑泽奇对省汽配厂的安置不服，以省国资委监督不作为为由提起行政诉讼。本院于2016年12月15日作出（2016）琼行终501号生效行政判决，责令省国资委对郑泽奇于2016年4月17日寄交的《关于海南省汽配厂改制的行政行为涉及郑泽奇工伤待遇问题进行行政处理的申请书》中涉及的申请事项作出处理。后省国资委依法调查并答复郑泽奇，告知省汽配厂职工安置方案中具体核算其个人工伤待遇安置费用有误，已发文责成企业进行整改，依法合规重新核算，按照规定程序报批执行。从以上事实可以看出，省国资委已依法履行其法定职责，并不存在不作为情形。郑泽奇主张省国资委未履行法定职责没有事实和法律依据，依法不予支持。
关于郑泽奇请求对《海南省汽配厂关于请求审查〈企业改制方案〉、〈职工安置方案〉的请示》（海厂[2012]019号）、《海南省政府国有资产监督管理委员会关于省汽配厂职工安置方案初审意见的函》（琼国资函[2013]62号）、《海南省人力资源和社会保障厅关于海南省汽配厂职工安置方案的复函》（琼人社函[2013]304号）等文件的合法性进行审查问题，上述文件不属于人民法院在行政诉讼中附带审查规范性文件的范围，依法不予处理。
综上，郑泽奇的上诉请求缺乏事实根据和法律依据，依法应予驳回。原审判决认定事实清楚，适用法律正确，判决结果并无不当，依法应予维持。依照《中华人民共和国行政诉讼法》第八十九条第一款第（一）项的规定，判决如下：
驳回上诉，维持原判。
二审案件受理费50元，由上诉人郑泽奇负担。
本判决为终审判决。
审判长麻红丽
审判员郑怀全
审判员黄胜敏
二〇一七年十二月十五日
书记员王洪玉
附：本判决适用的相关法律依据
《中华人民共和国行政诉讼法》
第八十九条人民法院审理上诉案件，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；
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