我國消費者保護法體系構作與實務之研究

消費者保護法自1994年制定施行至今，在法院裁判實務上，主要在定型化契約、特種交易、消費資訊、懲罰性賠償金、行政調查、履約保證及救濟等問題，在適用上各有爭議，其間雖已經過多次修正，惟仍有諸多與民法及其他特別法，如金融消費者保護法或保險法之理論與實務問題待解決。在定型化契約，應討論者為條款是否構成契約內容，首先之爭執點為，是否給予消費者合理審閱期間及未給予之法律效果；其次，應記載與不得記載事項之效力規定如何及與消費者保護法第22條廣告效力之認定爭議等。在特種交易猶豫期部分，其與定型化契約之審閱期在性質及適用上二者並無替代關係，但行政院金融監督管理委員會於2018年公告保險法部分條文修正草案，其中為滿足消費者保險契約審閱期之需要以及消費者行使契約撤銷權之遵循依據，爰提出保險法修正草案第55條之1增訂得兼具有二種權利之規定。惟審閱期與猶豫期之規範目的、功能等並不相同，以保險契約之猶豫期替代審閱期是否妥適、可行？實值加以探討。在履約保證部分，由於預付型交易為企業經常採用之繼續性給付之交易型態，對企業而言，除可收一筆資金供其靈活運用外，對廣大消費者而言則可因其一次支付全額可享有業者給予分次給付之消費者所無之額外的附加價值，但如果企業經營不善或有惡性倒閉之情事，除對國家社會產生負面影響外，對消費者而言，則是非常大之損失。為解決此項問題，2015年修正通過之消費者保護法於第17條第1項明確規定：中央主管機關得擬訂其定型化契約應記載或不得記載事項。並規定應記載事項之內容得包括預付型交易之履約擔保。但因履約保證制度係屬關於人民權利義務之重大事項，此項規定或授權規定是否即可解決上述亂象以及有無遵守法律保留原則之適用，容有討論空間。在懲罰性賠償金部分，懲罰性賠償金乃是在民法規定之補償性賠償外，為懲罰被告具有惡意的不法行為以及為嚇阻被告或他人於未來從事類似之不法行為而給予被害人的賠償金。消費者保護法第2章規範之內容包含商品及服務責任、定型化契約、特種交易及不實廣告，但懲罰性賠償金是否對於全部均可適用，學者及實務之間則有不同見解。如從消費者保護法立法目的觀之，解釋上應可全部適用。在行政調查部分，行政調查之行使範圍，如因法院可依其判決解釋方式對於行政機關行使其行政調查權限加以限縮解釋，難免造成法官過於依賴文字表面，此等行事對於人民的權益影響又最巨。因此，為因應變化多端之消費型態，乃有進一步確立消費者保護法第33條規定之行政調查權範圍。再者，以主管機關依據消費者保護法行使行政調查時亦有聲請扣押權限，此與消費者保護法有相關之公平交易法亦著有相似規定，乃並兼論公平交易法之是否應仿德國不正競爭禁止法於本2021年1月新增之第59b條內容，使主管機關在緊急或者必要情況下亦可擁有搜索權限，或可作為消費者保護法主管機關於行使行政調查權時，對於可供刑事責任證據的獲得提供思考的方法，特別在渉及重大民生消費問題，例如在採取預付型消費之企業經營者於無預警倒閉之前仍繼續收取金額而渉有詐欺嫌疑時，更見其重要性。透過本論文之分析及相關之建議，希得以提供相關政府機關於修法時之參考，進而達到促進人民權益維護之目的。

關鍵字

定型化契契；特種交易；消費資訊；懲罰性賠償金；行政調查；履約保證；救濟制度

並列摘要

The Consumer Protection Act has been enacted and implemented in 1994. In the practice of court judgments, issues such as standard contracts, special transactions, consumer information, punitive damages, administrative investigations, performance guarantees, and relief have been controversial. In the standard contract, what should be discussed is whether the terms constitute the content of the contract. The first point of contention is whether to give consumers a reasonable review period and legal effects that are not given; secondly, how to stipulate the validity of the items that should be recorded and not to be recorded, and how it is related to consumption disputes over the determination of the validity of advertisements in Article 22 of the Consumer Protection Act, etc. In the part of the special transaction cooling-off period, it is not a substitute for the review period of the standard contract in terms of nature and application, but the Financial Supervision and Administration Commission of the Executive Yuan announced in 2018 draft amendments to some provisions of the Insurance Law, among which are to meet the needs of the review period for consumer insurance contracts and the basis for consumers to exercise their right to rescind contracts, Article 55-1 of the Draft Amendment to the Insurance Law is proposed to add provisions that have both rights. However, the regulatory purpose and function of the review period and the cooling-off period are different. Is it appropriate and feasible to replace the review period with the cooling-off period of the insurance contract? real value to be discussed. In the performance guarantee part, since the prepaid transaction is a transaction type of continuous payment often used by enterprises, for enterprises, in addition to receiving a lump sum of funds for their flexible use, for consumers, they can make one-time payment the full amount can enjoy the extra value added by the operator to the consumers who are paid in installments. However, if the business operator does not operate well or has a vicious bankruptcy, in addition to having a negative impact on the country and society, for consumers, it is very big loss. In order to solve this problem, the Consumer Protection Act, which was amended and passed in 2015, clearly stipulates in Paragraph 1 of Article 17: The central competent authority may formulate the matters that should or may not be recorded in the finalized contract. It also stipulates that the content of the items to be recorded may include performance guarantees for prepaid transactions. However, since the performance guarantee system is a major issue concerning the rights and obligations of the people, there is room for discussion as to whether this provision or authorization provision can solve the above-mentioned chaos and whether the application of the principle of legal reservation is complied with. In the part of punitive damages, punitive damages are in addition to the compensatory damages stipulated in the Civil Code, in order to punish the defendant's malicious wrongdoing and to deter the defendant or others from engaging in similar wrongful acts in the future. The contents of Chapter 2 of the Consumer Protection Act include liability for goods and services, standard contracts, special transactions and false advertisements, but whether punitive damages are applicable to all of them, scholars and practitioners have different opinions. From the perspective of the legislative purpose of consumer protection law, the interpretation should be applicable to all. In the part of administrative investigation, the scope of the exercise of administrative investigation, if the court limit the interpretation of the administrative organ's exercise of its administrative investigation authority according to its judgment interpretation method, it will inevitably cause judges to rely too much on the surface of words, and such actions will have a negative impact on the rights and interests of the consumers. Therefore, in order to respond to the ever-changing consumption patterns, the scope of the administrative investigation power stipulated in Article 33 of the Consumer Protection Act has been further established. Furthermore, the competent authority also has the right to apply for seizure when exercising administrative investigations in accordance with the Consumer Protection Act. The Fair Trade Act, which is related to the Consumer Protection Act, also has similar provisions. It also discusses whether the Fair Trade Act should be imitated. The new article 59b of the German Unfair Competition Prohibition Act in January 2021 enables the competent authority to have search powers in emergency or necessary situations, or can act as the competent authority of Consumer Protection Act when exercising the power of administrative investigation, It provides a way to think about the acquisition of evidence of criminal responsibility, especially when dealing with major consumer issues, such as when an enterprise operator who adopts prepaid consumption continues to collect money before closing down without warning, and is suspected of fraud. its importance. Through the analysis of this paper and related suggestions, it is hoped that it can provide relevant government agencies with reference when revising the law, so as to achieve the purpose of promoting the protection of people's rights and interests.