海南省第二中级人民法院
p t ; ” > 刑 事 裁 定 书
（2017）琼97刑终247号
原公诉机关海南省乐东黎族自治县（以下简称乐东县）人民检察院。
上诉人（原审被告人）周浮孝，男，1981年7月8日出生于海南省乐东县，公民身份号码×××，汉族，原中共党员，本科文化，历任乐东县佛罗镇党委委员，乐东县黄流镇人大代表、党委委员兼宣传委员，副科级，住乐东县。因涉嫌犯玩忽职守罪于2016年10月9日被乐东县人民检察院取保候审。2017年1月6日被乐东县人民法院取保候审。
乐东县人民法院审理乐东县人民检察院指控原审被告人周浮孝犯滥用职权罪一案，于2017年5月19日作出（2016）琼9027刑初15号刑事判决。原审被告人周浮孝不服，提出上诉。本院受理后，依法组成合议庭，经过讯问上诉人，认为事实清楚，决定不开庭审理本案。现已审理终结。
原判认定：2015年乐东县人民政府为切实做好农村危房改造工作，先后以乐府办[2015]90、113、144号办公室文件下发了农村危房改造实施方案的通知。方案明确不搞普惠制，补助对象必须是居住在危房中且具有农业户籍的农村分散供养五保户、低保户、贫困残疾人家庭、贫困纯女户和其他农村贫困户，危房是指依据住房和城乡建设部《农村危险房屋鉴定技术导则（试行）》鉴定属于整栋危房（D级）或局部危险（C级）的房屋；新建房屋面积严格控制在人均13平方米以上，户均60平方米以下，可根据家庭人口适当调整；危房改造申报程序及所需资料，其中包括镇政府审核的农户申请书、五保（低保、残疾）证明复印件、村委会确认的《海南省农村危房改造农户申请审批表》、海南省农村危房改造农户安全等级鉴定书；镇政府收集完善《全国扩大农村危房改造试点档案信息表》并组织相关人员按照住房城乡建设部建村[2013]104号《农村危房改造最低建设要求（试行）》进行验收，验收合格的按《海南省农村危房改造检查验收表》登记后通过财政局发放补助。
时任中共乐东县佛罗镇党委委员的被告人周浮孝分管该镇危房改造工作，镇党委办公室的郭某1协助工作。在工作开展过程中，被告人周浮孝没有依照实施方案的要求执行，仅根据村委会报送的资料及个人经验进行判断；没有对申请危房改造的农户是否五保（低保、残疾等）进行审查，导致不符合条件的申请农户被认定为其他贫困户；在自身不具备鉴定资质也没有委托相关鉴定机构或鉴定人员的情况下，直接认定农户旧房为D级危房；在填写《海南省农村危房改造申请审批表》、收集完善农户信息及农户新建房屋验收表时编造数据，造成申请危房改造的部分农户在数据上符合申请条件；在无专业技术人员的情况下直接认定农户新建房屋验收合格，导致佛罗镇共计52户不符合条件的申请对象获得危房改造补助款，致使国家利益遭受重大损失109.2万元。
上述事实，被告人周浮孝在开庭审理过程中并无异议，且有书证常住人口登记表，公务员登记表、干部任免审批表、公务员工资审批表、党组织生活会议记录，乐府办[2015]90号、113号、144号乐东县人民政府办公室文件，2015年佛罗镇低保、五保户信息，2015年佛罗镇贫困户信息，佛罗镇2015年农村危房改造补助发放表，海南省农村危房改造农户申请审批表、海南省农村危房改造农户房屋安全等级鉴定书、全国扩大农村危房改造试点档案信息表、农村危房改造最低建设要求验收表、海南省农村危房改造检查验收表、房产面积测算报告书，2015年佛罗镇申请危房改造的52户新建房屋照片，到案经过、证人郭某1、石某1、孙某1、孙某2、方某2、陈某1、郭某2、谢某1、林某2、石某2、王某1、许某1、吴某1、吉某1、吉某2、张某1、张某2、许某2、方才和、林某3、潘某1、王某2、吉某3、陈某2、吉某4、黄某1、潘某2、石某3、陈某3、李某、林昌东、吴某2、陈某4、潘某3、吉某5、陈某5、吉某6、林某4、谢某2、徐某、陈某6、高某、吉某7、林某5、陈某7、石某4、林某6、曾某、盛某1、吴某3、林某7、吉某8、吉某9、蔡某、麦壮和、邢某1、陈某8、黄某2、林某8、陈某9、石某5、陈某10、石某6、林某9、邢某2、邢某3、王某3、王某4、陈某11、盛某2、林某10、邢某4、邢某5、邢某6、吉某10、陈某12的证言、被告人周浮孝的供述等证据证实。
原判认为，本案的发生存在多方面原因，虽然被告人周浮孝违反规定处理公务，未审查村委会报送的材料便作审核通过的意见报送县危改办，但在整个流程中是衔接前后的作用，县危改办也未履行好审批权，由此造成的损害后果不应全部归责于被告人；同时，考虑到实际工作中，镇政府的经费、人员编制有限，开展工作时存在困难，而乡镇工作人员工作量大、内容繁杂，且人手紧缺，在上级限定时间完成工作的情况下，难以面面俱到，结合被告人周浮孝到案后如实供述自己的犯罪事实，在庭审中自愿认罪，有悔罪表现，依法可以从轻处罚，并可适用缓刑。为正确贯彻宽严相济刑事政策，充分发挥刑罚的惩治和预防功能，通过对被告人的犯罪行为予以法律评价和惩处，对犯罪行为所破坏的社会关系予以修复，并对社会公众予以警示。根据本案被告人的犯罪事实、性质、情节及对社会的危害后果，结合被告人所在社区矫正机构的评估意见，经本院审判委员会讨论决定，依照《中华人民共和国刑法》第三百九十七条第一款、第二十五条第一款、第六十七条第三款、第七十二条、第七十三条的规定，判决：被告人周浮孝犯滥用职权罪，判处有期徒刑二年，缓刑三年。
宣判后，原审被告人周浮孝不服，提出上诉称：1.一审判决认定事实清楚、证据确实、充分，上诉人周浮孝的行为确实构成犯罪，但应当构成玩忽职守罪，而不是滥用职权罪，原判适用法律错误。2.佛罗镇52户不符合危房改造补助条件的农户领取补助款，给国家造成重大经济损失的最主要原因是由于乐东县农村危房改造工作领导小组办公室的不作为造成的。3.上诉人周浮孝在从事该镇农村危房改造工作中，没有按照县政府实施方案的要求、没有鉴定资质却直接在《海南省农村危房改造农户房屋安全等级鉴定书》上认定为D级危房，是由于客观条件所限，无法采取其他必要措施所致。综上，考虑到实际工作中，镇政府的经费、人员编制有限，开展工作时存在困难，在上级限定时间完成工作的情况下，难以面面俱到，且上诉人周浮孝的失职行为仅是造成损害结果的间接原因，只应承担次要责任，希望二审法院能改判上诉人周浮孝犯玩忽职守罪，免予刑事处罚。
经二审审理查明的事实和证据与一审相同，且一审采信的证据均经一审庭审举证、质证，二审核实，证据客观真实，来源合法，与案件事实具有关联性，足以证明本案事实，本院予以确认。
关于上诉人周浮孝的上诉理由，经查，滥用职权罪与玩忽职守罪关键区别在于行为方式与主观要件不同，滥用职权罪是一种积极作为、违背职责的行为，是故意犯罪；而玩忽职守罪是疏忽、不认真履行职责的行为，是过失犯罪。本案中，上诉人周浮孝在负责佛罗镇危房改造工作中，违反工作规定，未正确履行工作职务，不进行调查、核实农户的申请和提供的材料，超越职权认定农户旧房的危房等级，并编造与农户新建房屋实际面积不符的数据。其行为并非不作为的玩忽职守行为，而符合滥用职权罪的构成要件。故原判定性准确，适用法律并无不当。原判在量刑时，已综合本案多因一果的现实情形，并充分考虑到上诉人周浮孝的犯罪情节、悔罪表现等因素，对其判处有期徒刑二年，缓刑三年的量刑适当。综上，上诉人周浮孝的上诉理由不能成立，本院不予采纳。
本院认为，上诉人周浮孝作为国家机关工作人员，工作中严重不负责任，不正确履行职责，滥用职权，造成国家经济重大损失共计人民币1092000元，其行为已构成滥用职权罪。原判认定上诉人周浮孝犯滥用职权罪的事实清楚，证据确实充分，定罪和适用法律准确，量刑适当，审判程序合法，应予维持。上诉人周浮孝的上诉理由不能成立，应予驳回。依照《中华人民共和国刑事诉讼法》第二百二十五条第一款第（一）项的规定，裁定如下：
驳回上诉，维持原判。
本裁定为终审裁定。
审判长王天琳
审判员吴曼江
审判员陈涌新
二○一七年九月二十一日
法官助理孙大伟
书记员周薇
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