海南省海口市中级人民法院
p t ; ” > 行 政 判 决 书
(2017)琼01行终133号
上诉人（原审原告）：吴永伟，男，汉族，1974年12月23日出生，住海口市。
委托代理人：吴永雄，广东华商（长沙）律师事务所律师。
委托代理人：吴龙飞，女，汉族，1968年6月21日出生，住海口市，系上诉人妻子。
被上诉人（原审被告）：海口市人力资源和社会保障局，住所地海口市秀英区长滨三路9号市政府第二办公区16号楼4楼。
法定代表人:朱韶雄，局长。
委托代理人:刘仁平，海口市人力资源和社会保障局工作人员。
委托代理人:韩耀，海南瑞来律师事务所律师。
原审第三人：海南（海口）特殊教育学校，住所地海口市龙华区城西镇城南路21号。
法定代表人:甘方波，校长。
委托代理人:唐清荣，该校副校长。
上诉人吴永伟因与被上诉人海口市社会保险事业局（以下简称市社保局）及原审第三人海南（海口）特殊教育学校（以下简称特殊学校）劳动和社会保障行政确认一案，不服海口市秀英区人民法院（2017）琼0105行初29号行政判决，向本院提起上诉。本院于2017年7月5日受理后，依法组成合议庭，对本案进行了审理，现已审理终结。
原审法院查明：吴永伟系第三人特殊学校的员工，在该校担任总务处主任职务，具体负责学校校园建设”校园风雨走廊”项目的设计、预算、招标等具体工作。2016年8月29日，特殊学校要求全体教职工于当天上午八时三十分回校报到，九点在学校多功能报告厅召开2016年下半年新学期所有教职员工会议。当天上午7时许，吴永伟驾驶×××小型客车从琼山区振发路125号翔龙小区的家中出发前往学校，并顺路在中途与前天（28日）约好的负责学校”校园风雨走廊”的项目施工负责人收取施工方提交的资料。在前往特殊学校途中，约8时30分经过石塔一横路路段，尚未到达与施工方约定的见面地点时发生单方翻车交通事故，被120送往中国人民解放军第一八七医院检查治疗。经医院诊断结论为：1、脑震荡；2、应激性木僵；3、双肺挫伤。
2016年9月6日，特殊学校向市社保局提交《工伤认定申请表》，以吴永伟在上班途中发生交通事故受伤为由，向市社保局申请工伤认定。同时还提交了吴永伟身份证复印件、事故现场旁证书面材料及证明人身份证复印件、劳动合同、营业执照副本复印件、诊断证明书、证明、道路交通事故认定书、上下班路线图、微信截图、关于吴永伟申报工伤的补充情况说明、手机通话记录、建筑工程施工合同书等证据材料。市社保局经调查，认为吴永伟当天是从家中到学校的上班途中发生交通事故受伤，且交警部门对事故责任没有作出认定，其情形不符合《工伤保险条例》第十四条的规定。2016年12月18日，市社保局作出本案被诉的571号决定书，认定吴永伟于2016年8月29日上午7时许，在驾驶×××小型客车从琼山区振发路125号翔龙小区家中出发，约8时30分在前往特殊学校途中，经过石塔一横路路段时发生单方翻车交通事故，报经120送往海口市中国人民解放军第一八七医院检查治疗。诊断结论为：1、脑震荡；2、应激性木僵；3、双肺挫伤。根据海口市公安局交通警察支队作出的0004915号《道路交通事故认定书》所认定的事实，本案吴永伟系在上班途中驾驶车辆发生翻车的交通事故造成其受伤，属于意外交通事故。因此，吴永伟受到的伤害，不符合《工伤保险条例》第十四条规定的情形，决定不予认定为工伤。该决定书随后向吴永伟和特殊学校送达，吴永伟不服，遂向原审法院提起行政诉讼。
原审法院认为：本案当事人争议的焦点是市社保局不予认定吴永伟所受伤害为工伤的行为是否合法。经庭审质证后确认，首先，根据《工伤保险条例》第十四条第（五）项的规定，职工因公外出期间，由于工作原因受到伤害的，应当认定为工伤。本案吴永伟根据特殊学校的要求，在事发当天从家中出发，按平时正常的上班路线驾车上班，并顺路在途中接收由施工方提交的材料，其活动范围并未超出上下班的行动路线。因此，吴永伟的行为不属因公外出的范畴。其次，根据《工伤保险条例》第十四条第（六）项的规定，职工在上下班途中受到非本人主要责任的交通事故伤害的，应当认定为工伤。本案吴永伟是在上下班途中受到交通事故伤害，但由于是单方发生交通事故，交警部门在事故处理过程中无法对此作出事故责任认定，市社保局据此作出不予认定为工伤的行政决定，其行为并无不当。况且,作出交通事故责任认定也不属市社保局的职责范围。综上，市社保局的辩解理由成立，予以采纳。吴永伟起诉的理由与事实不符，且于法无据，原审法院不予支持，依法应予驳回。根据《中华人民共和国行政诉讼法》第六十九条之规定，判决驳回吴永伟的诉讼请求。
上诉人吴永伟不服原审判决，向本院提起上诉，上诉请求：1、请求撤销秀英区人民法院（2017）琼0105行初29号行政判决书；2、请求撤销市社保局海人社工伤认定字（2016）571号《不予认定工伤决定书》的具体行政行为。3、判令市社保局承担一、二审的诉讼费。事实理由：一、吴永伟符合法律应当认定为工伤的情形。《最高人民法院关于审理工伤保险行政案件若干问题的规定》第五条：”社会保险行政部门认定下列情形为”因工外出期间”的人民法院应予支持：......”吴永伟受学校（第三方）明确指派具体负责”校园风雨长廊”项目，吴永伟在学校担任的总务工作职责范围包括”负责总务处全面工作、对学校基建项目、修缮工程、政府采购等进行管理”。吴永伟于事故当日与项目施工方人员约定交接工程预付款资料是工程项目在当时阶段至关重要的工作，如不及时完成，可能会影响到工程进度、单位”双创”工作及正常开学，特殊学校在庭审中也阐述：”当天交接的预付款资料非常重要”。因此，吴永伟当日在授权及职责范围内，因为工作的需要，在合理的时间、合理的地点开展和工作相关的行为，性质完全符合《最高人民法院关于审理工伤保险行政案件若干问题的规定》第五条第一款第（一）项”职工受用人单位指派或者因工作需要在工作场所以外从事与工作职责有关的活动期间”的情形。上述司法解释条文”职工受用人单位指派或者因工作需要”强调的是受指派或因工作需要在”工作场所以外”从事与工作职责有关的活动，吴永伟平时的”工作场所”在学校，当天交接的资料地点在石塔村路口，该场所明显不在吴永伟的工作场所”学校”之内，符合上诉司法解释条文的”工作场所以外”的规定，原审法院不能因为该地点”范围并未超出上下班的行动路线”而否定该地点位于”工作场所以外”的事实。
二、一审法院认定的”本案吴永伟根据特殊学校的要求，在事发当天驾车上班，并顺路在途中接受材料，其活动范围并未超出上下班的行动路线”法律适用错误。1、判决书中”顺路”的推断是一种纯粹的主观判断，本案各种证据材料和庭审记录中没有任何资料表明当天吴永伟交接材料是一种”顺路”或”顺便”的行为。2、一审法院作出上述认定之前讨论的是”首先，根据《工伤保险条例》第十四条第（五）项”的规定，此时的语境讨论的是是否符合第十四条第（五）项的规定，然后却又话锋一转，讲”其活动范围并未超出上下班的行动路线”又回到了《工伤保险条例》第十四条第（六）项”职工上下班途中...”的情况。首先《工伤保险条例》第十四条第（五）项和第（六）项是两项独立的规定，不能混淆或互相适用。其次，第十四条第（五）项只在第二款排斥了不能认定为工伤的情形，司法解释条文中”在工作场所之外”，并没有排除”上下班行动路线”。也就是说不管是不是”上下班路线”，只要是”在工作场所以外”，就符合第（五）项的关于场所的规定。不能因为该活动范围和上下班行动路线有重合就认为不属于”在工作场所之外”。最后，假设按照一审法院的逻辑，在”上下班路线”上就不能依委托或依职责办理任何公事，否则万一出事就不能适用”职工因公外出期间”的第十四条第（五）项之规定，不能认定为工伤，这种逻辑明显是站不住脚的，可以反证出第十四条第（五）项关于”工作场所以外”能排除上下班路线的结论。
综上所述，吴永伟因公受伤符合《工伤保险条例》第十四条第（五）项和《最高人民法院关于审理工伤保险行政案件若干问题的规定》第五条的规定，应当认定为工伤，原审法院判决不符合法律规定，请求二审法院撤销原判决，直接改判支持吴永伟的诉讼请求。
被上诉人市社保局辩称：首先，经市社保局调查事故发生当天是特殊学校召开全体教职工会议的时间，吴永伟驾车行驶的路线处于上下班合理路线上，市社保局及原审法院认定事故发生时吴永伟处于上班途中有事实依据，其次，吴永伟称其因公外出的证据不足，如前所述事发当天特殊学校召开全体教职工会议，该校除了通知吴永伟到校开会外并没有指派吴永伟外出公务，其在上班途中接受材料的行为不属于因公外出的情形。综上，原审判决根据《工伤保险条例》第十四条第（六）项的规定，认定吴永伟发生交通事故不属于非本人主要责任的交通事故，进而判决驳回其诉讼请求，认定事实清楚，适用法律正确，应予维持。
原审第三人特殊学校述称：吴永伟是特殊学校的总务处主任。”校园风雨长廊”项目由吴永伟具体分管，平时都是吴永伟与施工方直接联系，现场由其全权负责。事故当天是吴永伟事先联系好施工方交接”校园风雨长廊”项目首付款的相关材料。吴永伟有权自行决定前去交接项目的相关材料，无需学校对每一项工作都再行外派。
二审期间，吴永伟的委托代理人吴永雄提交其书面陈述一份作为证据，本院经审查认为，上述证据不属于法律规定的新证据范围，且市社保局不予认可，故本院对上述证据不予采信。
各方当事人对原审法院查明的事实均无异议，本院予以确认。
本院二审查明：海口市公安局交通警察支队作出的0004915号《道路交通事故认定书》载明，2016年8月29日8是30分许，吴永伟驾驶一辆×××小型客车路过石塔一横路3号前路段时发生翻车的交通事故，造成该车损坏及吴永伟受伤。该事故认定书并未对此次事故的责任进行认定，即既未认定为责任事故，也未认定为意外事故。原审判决将此次事故认定为意外事故确属不妥，本院予以纠正。
本院认为：一、《工伤保险条例》第十四条第（五）项规定：职工因公外出期间，由于工作原因受到伤害或者下落不明的，应当认定为工伤。该项规定包含三个客观要件，一是由身体受到伤害的后果；二是因公外出期间；三是因工作原因。《最高人民法院关于审理工伤保险行政案件若干问题的规定》（法释[2014]9号）第五条第一款规定：社会保险行政部门认定下列情形为”因公外出期间”的，人民法院应予支持：（一）职工受用人单位指派或者因工作需要在工作场所以外从事与工作职责有关的活动期间；......本案中，首先，吴永伟是特殊学校的总务处主任，受学校指派负责学校校园建设”校园风雨走廊”项目的设计、预算、招标等具体工作。在项目未完成前，吴永伟作为该项目的负责人，有权自行安排与建设项目有关的具体事项，无需学校逐项进行指派，其自行安排的每个具体事项，均应认定为受学校指派。其次，吴永伟因为工作需要约定在上班合理路途中交接其负责工程的资料，符合《最高人民法院关于审理工伤保险行政案件若干问题的规定》第五条第一款第（一）项的因工作需要在工作场所以外从事与工作职责有关的活动的规定，根据《工伤保险条例》第十四条第（五）项规定，吴永伟系因公外出期间，由于工作原因受到伤害，满足该条规定的三个客观要件，应当认定为工伤。
二、《工伤保险条例》第十四条第（六）项的规定，职工在上下班途中受到非本人主要责任的交通事故伤害的，应当认定为工伤。《最高人民法院关于审理工伤保险行政案件若干问题的规定》（法释[2014]9号）第一条第一款规定：人民法院审理工伤认定行政案件，在认定是否存在《工伤保险条例》第十四条第（六）项”本人主要责任”、第十六条第（二）项”醉酒或者吸毒”和第十六条第（三）项”自残或者自杀”等情形时，应当以有权机构出具的事故责任认定书、结论性意见和人民法院生效裁判等法律文书为依据，但有相反证据足以推翻事故责任认定书和结论性意见的除外。本案中，海口市公安局交通警察支队作出的0004915号《道路交通事故认定书》并未对事故的责任进行认定，未明确吴永伟对事故负主要或全部责任，还是意外事故。《道路交通事故处理办法》第十七条的规定：公安机关在查明交通事故原因后，应当根据当事人的违章行为与交通事故之间的关系，以及违章行为在交通事故中的作用，认定当事人的交通事故责任。当事人有违章行为，其违章行为与交通事故有因果关系的，应当负交通事故责任。当事人没有违章行为或者虽有违章行为，但违章行为与交通事故无因果关系的，不负交通事故责任。据此，交通事故的责任认定，需要审查诸多因素，发生单方事故并不意味着当事人要负全部责任。市社保局在无有权机构出具的事故责任认定书的情形下，作出不予认定工伤决定缺乏事实依据，被诉《不予认定工伤决定书》认定事实不清，主要证据不足。
综上所述，原判认定事实错误，处理结果不当，依法应予纠正。依照《中华人民共和国行政诉讼法》第八十九条第一款第（二）项之规定，判决如下：
一、撤销海口市秀英区人民法院（2017）琼0105行初29号行政判决；
二、撤销海口市人力资源和社会保障局于2016年12月18日作出的海人社工伤认定字〔2016〕571号《不予认定工伤决定书》。
本案一、二审案件受理费人民币各50元，均由被上诉人海口市人力资源和社会保障局负担。
本判决为终审判决。
审判长吴茜
审判员潘娜
审判员何芳
二〇一七年九月十八日
法官助理ＸＸ
书记员麦海燕
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；
（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）原判决认定事实基本不清，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，当事人提出上诉的，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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