海南省第二中级人民法院
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（2017）琼97民终1059号
海南省第二中级人民法院
民事判决书
（2017）琼97民终1059号
上诉人（原审原告）刘怕作，男，1949年2月15日出生，黎族，住海南省昌江黎族自治县（以下简称”昌江县”）石碌镇县畜牧技术服务中心宿舍。
委托代理人符慧，海南海地律师事务所律师。
被上诉人（原审被告）昌江黎族自治县畜牧兽医局，住所地海南省昌江县县政府办公楼302号。
法定代表人符明雄，该局局长。
委托代理人陈倩煜，该局职员。
上诉人刘怕作因与被上诉人昌江黎族自治县畜牧兽医局（以下简称昌江畜牧兽医局）劳动争议纠纷一案，不服海南省昌江黎族自治县人民法院（2017）琼9026民初304号判决，向本院提起上诉。本院依法组成合议庭审理了本案，本案现已审理终结。
刘怕作上诉请求：一、撤销原审判决；二、改判被上诉人向上诉人支付拖欠的工资181608元及25%的经济补偿金45402元。事实与理由：一、一审判决认定事实不清，与事实不符。（一）上诉人请求确认与被上诉人之间存在劳动关系，属于人民法院受理范围。1.上诉人与被上诉人之间是平等主体之间的民事关系。2.上诉人与被上诉人自1994年12月30日起至2010年3月期间存在劳动关系。双方签订聘用制合同时劳动法等相关法律尚未颁布实施，不可能存在双方协商一致后签订聘用或者劳动合同。聘用合同签订之后直至2010年上诉人退休之前，被上诉人一直在持续用工，双方之间符合劳动法、劳动合同法规定的劳动关系。此外，通过向海南省编办、海南省总工会了解，所谓聘用为”干部”身份，也就是当时体制下的”固定工”，之后随着人事制度的改革，劳动法及相关条例的颁布和实施，逐渐取消了”固定工”和”临时工”的划分。上诉人与被上诉人之间仍是合同性质的劳动关系。（二）上诉人与被上诉人自1994年12月30日起至2010年3月期间存在劳动关系。1.1993年以前，上诉人已在××县工作多年。1993年底至1994年期间，为了解决海南省各乡镇农业技术推广机构的工作人员身份等遗留问题，调动工作人员的积极性，促进海南省农业社会化服务体系的发展，海南省人事劳动厅等四部门联合发布琼人劳公二[1993]29号文件，决定从乡镇农业技术推广机构的工作人员中招收聘用制干部，并制定了相应的审批、考核等标准。海南省人事劳动厅、昌江县人事局先后出具相关文件，同意招收上诉人为聘用制干部。1994年12月30日，上诉人与被上诉人签订《聘用制干部合同书》。2.上诉人接受被上诉人的安排和管理。上诉人作为聘用制干部，属于《乡镇畜牧兽医站管理办法》规定的编内人员。被上诉人制定《干部花名册》便于对上诉人工作的管理和安排。各乡镇畜牧兽医站的站长由被上诉人任命。上诉人的工作是被上诉人业务组成部分，上诉人按照被上诉人的指示和要求进行工作。3.上诉人的劳动报酬由被上诉人支付。经营性收入不是上诉人的工资来源，只是作为改善工作和生活条件的资金。未进编内的在岗集体人员、农民技术员属于自筹人员，其经费主要靠服务创收解决。上诉人属于编制内人员，由被上诉人的事业经费保障。（三）被上诉人拖欠工资的事实清楚，从上诉人一审提交的证据来看，被上诉人一直以来都愿意解决拖欠上诉人工资的问题。被上诉人对拖欠工资自认，且多次向现政府请款。（四）被拖欠工资数额的计算依据。1.上诉人原审提交的《22人工资计算明细》是依据《海南经济特区事业单位工作人员晋升（确定）工资审批表》、《海南经济特区城镇从业人员缴纳基本养老保险费登记卡》、《养老个人缴费明细单》及《工伤个人缴费明细单》计算得出，被上诉人对数额明细也没有异议。2.《海南经济特区事业单位工作人员晋升（确定）工资审批表》确认的数额，是上诉人每月应当领取的具体工资数额及晋升的时间、数额。二、一审判决适用法律错误，本案应当适用民事诉讼法第119条，劳动法第2条、第46条至50条，劳动合同法第2、7、29、30条以及《违反和解除劳动合同的经济补偿办法》第3条等相关规定，依法进行审理并作出判决。恳请二审法院查明本案事实，作出公正判决。
被上诉人昌江畜牧兽医局辩称：第一，刘怕作的人事关系已经过处理、但未得到明确的答复，无法确定刘怕作的工资；第二，刘怕作是昌江县人劳局招聘的，其只是用工单位，昌江畜牧兽医局并未直接与上诉人签订聘用合同，上诉人不属于昌江畜牧兽医局的编制内干部；第三，刘怕作的工资是列入财政预算的，是由畜牧兽医站自筹发放，不是由昌江畜牧兽医局发放。综上，刘怕作的上诉请求不应支持。
刘怕作一审的诉讼请求：1.请求确认上诉人与昌江畜牧兽医局自1994年12月30日起至2010年3月期间存在劳动关系；2.请求判令昌江畜牧兽医局向刘怕作支付拖欠工资181608元及25%的经济补偿金45402元。
一审法院认定，1994年9月5日，海南省人事劳动厅发布琼人劳[1994]31号《关于招收王树权等655位同志为聘用制干部的通知》，同年10月21日，昌江县人事局发布昌人字[1994]28号《关于招收赵江沙等35位同志为聘用制干部的通知》，同意招收刘怕作为聘用制干部。1994年12月30日，刘怕作与昌江畜牧兽医局签订《聘用制干部合同书》。2010年3月，刘怕作依法办理退休。刘怕作认为，其与昌江畜牧兽医局已建立起合法的劳动关系，昌江畜牧兽医局未依法支付劳动报酬和缴纳社会保险的行为，已经严重违反聘用合同的约定和法律规定。刘怕作因本案纠纷，提起民事诉讼。
另查明，刘怕作于2016年向一审法院起诉，请求确认其与昌江畜牧兽医局存在人事关系并要求昌江畜牧兽医局支付拖欠工资等诉请，一审法院分别作出裁定、判决，驳回刘怕作的起诉及诉讼请求。刘怕作于2017年3月24日向昌江县劳动人事争议仲裁委员会申请仲裁，该仲裁委于2017年3月27日以仲裁请求超过仲裁申请时效为由作出《不予受理通知书》。
一审法院认为，一、关于本案是否属于重复起诉的问题。刘怕作在前诉即（2016）琼9026民初552号案件中，请求确认存在人事关系，而后诉即本案刘怕作请求确认存在劳动关系，二者属于不同的法律关系，故昌江畜牧兽医局认为刘怕作在本案中的诉讼构成重复起诉的辩解意见，无事实和法律依据，不予采纳。二、关于昌江畜牧兽医局是否拖欠刘怕作工资、是否应支付经济补偿金的问题。通过本案有关人事聘用等证据可以认定，刘怕作当年的工作岗位系地方政府根据解决乡镇农业技术推广机构工作人员身份等遗留问题，以及促进农业社会化服务体系发展的现实需要，进行政策性安排的结果。具言之，有关聘用的过程、工资关系、社保待遇甚至包括服务期限等相关事宜，均是由地方政府按照当时的国家及地方政策予以政策性解决，所谓《聘用制干部合同书》主要系特定历史时期政府政策文件的产物，并非完全是由刘怕作与被告作为平等民事法律关系的主体（在签订合同过程中而非履行过程中）以协商的方式形成的。双方签订聘用合同后，因对人事劳动关系身份、经费保障渠道等问题产生争议，仍应在政策运行的过程中予以评价，而非法院民事诉讼审查评价的范围。刘怕作要求补发工资等诉请，系以人事劳动争议关系确定为前提，如前所述，刘怕作仍应通过政策渠道反映解决相关问题，在此之前，刘怕作要求支付拖欠工资及经济补偿金等诉请，缺乏基本的事实依据，不予支持。综上所述，依照《中华人民共和国民事诉讼法》第六十四条第一款及《最高人民法院关于适用<中华人民共和国民事诉讼法>的解释》第九十条之规定，判决：驳回刘怕作请求昌江畜牧兽医局支付拖欠工资181608元、经济补偿金45402元的诉讼请求。案件受理费10元，由刘怕作负担。
二审期间，双方当事人均未向本院提交新证据。
本院对一审查明的事实予以确认。
本院认为，结合本案上诉人提交的有关人事聘用的证据可以认定，上诉人与被上诉人签订的《聘用制干部合同书》，并非双方作为平等民事法律关系主体进行协商而签订的，而是在特定历史背景下，为了解决乡镇农业技术推广机构工作人员身份等遗留问题以及促进农业社会化服务体系发展的现实需要，根据中央有关部委、海南省人劳厅、农业厅等及昌江县人事局等各级政府部门的政策文件进行安排的结果。相应地，有关上诉人的工资关系、社保待遇等相关事宜均是由地方政府按照当时的政策予以解决。另外，上诉人与被上诉人之间的聘用合同签订于上世纪90年代，当时《中华人民共和国劳动合同法》等相关法律法规尚未颁布施行，根据”法不溯及既往”原则，现行的法律规定对双方当事人之间的法律关系及权利义务没有约束力。双方当事人因对身份编制、经费保障渠道等问题产生的争议，仍应由地方政府按照有关政策规定，在行政管理职权的范畴内进行解决和评价。双方当事人之间的人事争议，不属于人民法院民事诉讼审查的范围。因此一审认定关于确定人事关系的问题属于行政机关管理的职权，不属于民事诉讼的受案范围并无不当，本院对此予以确认。
上诉人要求补发工资系以人事关系确定为前提，而上诉人的人事关系尚未确定。在此之前，上诉人要求补发工资缺乏基本的事实依据。故一审未予支持上诉人关于补发工资的诉请，符合诉讼举证规则，本院对此亦予以确认。一审判决驳回刘怕作要求补发工资、经济补偿金的诉讼请求，并无不当。综上，刘怕作的上诉理由不能成立，一审认定事实清楚，适用法律正确，依法应予维持。依照《中华人民共和国民事诉讼法》第一百七十条第一款第一项之规定，判决如下：
驳回上诉，维持原判。
二审案件受理费10元由上诉人刘怕作负担。
本判决为终审判决。
审判长梁晶晶
审判员钟鸣亮
审判员赖永驰
二○一七年十月二十四日
法官助理赵密密
书记员霍永康
附相关法律条文：
《中华人民共和国民事诉讼法》
第一百七十条第二审人民法院对上诉案件，经过审理，按照下列情形，分别处理：
（一）原判决、裁定认定事实清楚，适用法律正确的，以判决、裁定方式驳回上诉，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错误的，以判决、裁定方式依法改判，撤销或者变更；
（三）原判决认定基本事实不清的，裁定撤销原判决，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。
（五）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。
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