海南省昌江黎族自治县人民法院
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（2013）昌行初字第25号
原告林桂梅，女，1953年3月4日出生，汉族，现住昌江黎族自治县（以下简称”昌江县”）石碌镇海南石碌钢铁厂宿舍。
委托代理人郑峻峰，海南华禾律师事务所律师。
被告昌江县人力资源和社会保障局。
法定代表人符露敏，该局局长。
委托代理人林诗江，该局监察大队大队长。
第三人海南省石碌钢铁厂劳动服务公司。
法定代表人王太雄，该公司经理。
委托代理人周正凡，海南天赐律师事务所律师。
委托代理人杨萍萍，海南天赐律师事务所律师助理。
原告林桂梅因要求被告昌江县人力资源和社会保障局履行法定职责，于2013年11月6日向本院提起行政诉讼。本院于2013年11月12日受理后，于2013年11月14日向被告送达了起诉状副本及应诉通知书。本院依法组成合议庭，于2013年11月28日公开开庭审理了本案。原告林桂梅及其委托代理人郑峻峰，被告昌江县人力资源和社会保障局委托代理人林诗江，第三人海南省石碌钢铁厂劳动服务公司法定代表人王太雄、委托代理人周正凡、杨萍萍到庭参加诉讼。本案现已审理终结。
原告林桂梅认为第三人应为其足额缴纳基本养老保险费而未缴、第三人未缴保险费的违法行为应处罚而未受罚；故起诉请求：1、判决被告履行法定职责，责令第三人为原告足额缴纳基本养老保险费；2、判决被告履行法定职责，对第三人未为原告缴纳保险费的违法行为进行行政处罚。
原告林桂梅诉称,原告是第三人海南省石碌钢铁厂劳动服务公司的职工，于1978年1月进入第三人处工作近30年，但第三人从未为原告缴纳基本养老保险费，导致原告无法办理退休、无法享受应当的退休待遇。原告因此事多次向被告反映、投诉没有结果。2013年8月25日，原告将书面的《关于履行法定职责，请求责令海南省石碌钢铁厂劳动服务公司为黄兰金、林桂梅、郭玉香同志足额缴纳基本养老保险费以及对海南省石碌钢铁厂劳动服务公司进行处罚的函》（以下简称”履职函”）寄给被告，请求被告依法履行法定职责，但被告不予理睬，故提起诉讼，请求：1、判决被告履行法定职责，责令第三人为原告足额缴纳基本养老保险费；2、判决被告履行法定职责，对第三人未为原告缴纳保险费的违法行为进行行政处罚。
被告昌江县人力资源和社会保障局辨称，一、原告林桂梅称多次向我局反映、投诉，我局不理睬与事实不符。我局于2013年8月26日收到林桂梅邮寄的”履职函”，而之前从未收到原告林桂梅向我局反映、投诉、请求的书面材料。二、对原告林桂梅的来函诉求，我局已经依法履行职责；我局及时以《<关于履行法定职责，请求责令海南省石碌钢铁厂劳动服务公司为黄兰金、林桂梅、郭玉香同志足额缴纳基本养老保险费以及对海南省石碌钢铁厂劳动服务公司进行处罚的函>回复函》（以下简称”回复函”）进行答复，不存在不履行法定职责。我局2013年8月26日收到原告来函后，经我局劳动监察人员调查，于2013年11月5日对原告林桂梅来函的诉求作出书面”回复函”，并将”回复函”送给原告林桂梅签收。三、原告林桂梅诉求我局责令第三人为其足额缴纳基本养老保险费和对第三人违法行为进行处罚已超过劳动保障法定行政执法时效。我局在《回复函》中明确指出：根据《劳动保障监察条例》第二十条规定”违反劳动保障法律、法规或者规章的行为在2年内未被劳动保障行政部门发现，也未被举报、投诉的，劳动保障行政部门不再查处”；”前款规定的期限，自违反劳动保障法律法规或者规章的行为发生之日起计算；违反劳动保障法律法规或者规章的行为有连续或者继续状态的，自行为终了之日起计算”。国家法律规定女职工法定退休年限为50周岁，经核实，原告林桂梅1953年3月4日出生，其法定退休年限是2003年3月，至今已超过10年，其2013年8月25日来函向我局反映，早已超过2年的查处时效。为此，我局回复依法不再查处是正确的。综上，我局不存在不履行法定职责的情形，请求人民法院依法驳回林桂梅的诉讼请求。
第三人海南省石碌钢铁厂劳动服务公司述称，一、原告不是第三人的职工。1、原告提交的”海南省石碌钢铁厂劳动服务公司”印制的《公司职工简历表》是虚假的。原告林桂梅填写该表的时间是1978年1月，当时海南省尚未成立，第三人也尚未成立，而原告认为该表是其自行办理退休手续时自行填写的，也说明是虚假的。2、原告提交的《劳动服务公司家属工花名册》是伪造的。原告其实不是第三人职工，只是第三人偶尔有一些事务，为了照顾第三人职工的家属，有时就雇用原告干过一天半载，然后按工作量支付一定的报酬。原告与第三人之间只存在劳务关系，而不存在劳动关系，其提供的《劳动服务公司家属工花名册》既无第三人盖章也无相关部门负责人签字，是原告自行填写的，不具有法律效力。二、原告的主张已过时效。依据《劳动保障监察条例》第二十条规定：”违反劳动保障法律、法规或者规章的行为在２年内未被劳动保障行政部门发现，也未被举报、投诉的，劳动保障行政部门不再查处”；”前款规定的期限，自违反劳动保障法律、法规或者规章的行为发生之日起计算；违反劳动保障法律、法规或者规章的行为有连续或者继续状态的，自行为终了之日起计算”。另据《中华人民共和国行政处罚法》第二十九条规定：”违法行为在二年内未被发现的，不再给予行政处罚。法律另有规定的除外”；”前款规定的期限，从违法行为发生之日起计算；违法行为有连续或者继续状态的，从行为终了之日起计算”。根据国家规定，女职工的法定退休年龄为50周岁，原告林桂梅生于1953年3月4日，其法定退休年龄为50岁，至今已有10年；原告林桂梅只在2013年8月向被告发出一份履行法定职责函件，没有在任何时间向被告反映、投诉第三人有存在违反劳动保障法律、法规或者规章的行为。原告退休年龄至2013年8月向被告发函，已经有10年时间，超过法律规定的两年时效。综上，本案原告并非第三人职工，其向被告请求已过法定时效，不再受法律保护；被告答复符合法律规定，原告起诉没有事实依据和法律依据，法院应当依法驳回原告的诉讼请求。
原告起诉时向本院提供以下证据：证据1，《公司职工简历表》、《劳动服务公司家属工花名册》，证明原告与第三人存在劳动关系；证据2，”履职函”、国内特快专递邮件详情单，证明原告要求被告依法行政和被告拒绝依法行政的事实。
被告于2013年11月22日向本院提供以下证据及依据：证据1，邮政快递单，证明收到原告来函时间；证据2，”回复函”，证明对原告来函已作出答复；证据3，《送达回执》，证明原告已经签收”回复函”；证据4，《劳动保障监察条例》，证明作出答复的法律依据。
第三人海南省石碌钢铁厂劳动服务公司没有证据提交。
经庭审质证，本院对证据作如下确认：
（一）对原告证据的确认：证据1为《公司职工简历表》、《劳动服务公司家属工花名册》，拟证明原告与第三人存在劳动关系。被告质证认为，劳动关系应由劳动仲裁部门或法院作出确认，凭证据1的简历表不能确认劳动关系；第三人对证据1的真实性有异议，认为简历表填写时间在第三人成立之前不合理，实际是第三人为了照顾原告自己办理退休手续才在表上盖章的；花名册是原告自己制作的，未盖第三人的公章，没有效力。本院认为，劳动关系应经法定程序确认，在诉讼程序中凭简历表和花名册不能确认劳动关系，对原告的证据1不予确认。证据2为”履职函”、国内特快专递邮件详情单，拟证明原告要求被告依法行政和被告拒绝依法行政的事实。被告和第三人对原告证据2的真实性没有异议，被告认为其已履行职责作出答复；第三人认为原告的主张已超过法律规定的时效。本院对原告证据2的真实性予以确认，确认原告于2013年8月25日要求被告履职的事实。
（二）对被告证据的确认：证据1为邮政快递单，拟证明收到原告来函时间；证据2为”回复函”，拟证明对原告来函已作出答复；证据3为《送达回执》，拟证明原告已经签收”回复函”；证据4为《劳动保障监察条例》，证明作出答复的法律依据。原告对被告证据1、2、3的真实性没有异议，对其合法性、关联性有异议，认为原告的要求未超过时效；认为证据4不能作为证据。第三人对被告提交4份证据均没有异议。本院认为，被告证据1作为邮政快递投送凭单具有合法性，原告和第三人对其真实性并无异议，本院对其予以确认，确认被告收到原告寄出”履职函”的事实。被告证据2”回复函”真实、合法，本院予以确认，确认被告就原告”履职函”进行答复的事实。被告证据3真实、合法，本院予以确认，确认原告收到被告”回复函”的事实。证据4作为有效的法规条款，本院予以确认，确认被告回复行为有法律根据。
根据上述有效证据及当事人质证意见，认定以下事实：
2013年8月25日，原告以其系第三人的职工、第三人未为其足额缴纳基本养老保险费致其无法享受退休待遇为由，向被告邮寄”履职函”，要求被告履行法定职责，责令第三人为其足额缴纳基本养老保险费，并对第三人未为其缴纳基本养老保险费的行为进行处罚。2013年11月5日，被告针对原告的”履职函”作出”回复函”，认为原告反映的事项已经超过《劳动保障监察条例》规定2年的查处时效，故其不再予以查处。被告于2013年11月20日将其作出的”回复函”送交原告本人。
另查明，因被告在诉讼期间于2013年11月20日将其作出的”回复函”送交原告，视为被告在诉讼期间作出具体行政行为。经本院征询原告是否撤诉，原告表示不撤诉。
本院认为，本案是原告认为被告不作为，要求被告履行法定职责的案件。《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》第五十条第三、第四款已有明确规定：”被告改变原具体行政行为，原告不撤诉，人民法院经审查认为原具体行政行为违法的，应当作出确认其违法的判决；认为原具体行政行为合法的，应当判决驳回原告的诉讼请求”；”原告起诉被告不作为，在诉讼中被告作出具体行政行为，原告不撤诉的，参照上述规定处理”。本案中，被告在诉讼期间于2013年11月20日将其作出的”回复函”送交原告，视为被告在诉讼期间作出具体行政行为，原告”履职函”中提出的请求事项，被告已经在”回复函”中做了答复。被告的答复行为即是作为，因此原告的诉讼主张，本院不予以支持。经本院征询原告是否撤诉，原告明确表示不撤诉。依据上述司法解释的规定，应当判决驳回原告的诉讼请求。据此，依照《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、第五十条第三款、第四款的规定，判决如下：
驳回原告林桂梅要求被告昌江黎族自治县人力资源和社会保障局履行法定职责的诉讼请求。
案件受理费50元，由原告林桂梅负担。
如不服本判决，可在判决书送达之日起十五日内，向本院递交上诉状，并按对方当事人的人数提出副本，上诉于海南省第二中级人民法院。
审判长黎向文
审判员符巨华
审判员谭凌云
二〇一三年十二月十六日
书记员杜翠华
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