- 學位論文
我國公用事業一般條款之研究─以行政監督與競爭監督為中心
The Study of Taiwan's Public Utilities General Terms －Focusing on Government Oversight and Competition Oversight
摘要
論文摘要 資本主義興起後，企業經營者開始大量生產，與消費者大量訂約，產生定型化契約之問題，對契約自由原則締約之方式有所改變，惟大量使用定型化契約一般條款之結果，使消費者權益被剝奪，故消費者保護法及民法就一般條款有所規定，且一般條款有特殊之解釋原則。本文研究公用事業一般條款問題，由於此等公用事業，如自來水、電力、煤氣、鐵路、捷運及電信事業，與一般民眾生活息息相關，其是否應受較嚴格之行政監督或競爭監督，殊值研究。其次，公用事業一般條款是否亦適用消保法、民法及一般條款之解釋原則，亦值研究。我國採訴訟二元制度，當事人間法律關係屬公法關係者，歸行政法院審判；屬私法關係者，歸普通法院審判。公營公用事業，有為各級政府設置或為官股占半數以上股份，但從事私經濟活動；亦有為行政主體為達成行政目的而結合人與物所設立之組織體，為公營造物性質，因此，公用事業與用戶間利用關係之法律性質為何，當事人之救濟途徑為何，有必要探究之。 為避免公用事業利用強勢地位，在定型化契約中擬定不公平的一般條款，對締約相對人用戶造成損失，有必要對該一般條款予以監督。一般條款之監督，可以分立法監督、司法監督與行政監督三種。公用事業所提供之商品或服務，一般為民生必需性，欠缺替代可能性，一旦公用事業利用其優勢地位締約，對弱勢之用戶可謂影響重大，因此，應強化對公用事業一般條款之各種監督。然尋求司法途徑救濟，對用戶緩不濟急，因而以有積極、主動及預防之行政監督（即目的事業主管機關依法規之監督）與競爭監督（即公平交易委員會依公平交易法之監督），規範公用事業一般條款，相信更能保障用戶權益。本文以實際上所收集之公用事業一般條款案例，分析公用事業與用戶間之利用關係產生爭議的救濟途徑等，並就行政監督與競爭監督提出建議。本文之內容架構如下： 第一章「緒論」：說明研究動機、研究方法及研究範圍。 第二章「公用事業利用關係與一般條款之關聯性」：探究公用事業與用戶間利用關係之條款是否為一般條款，消保法與民法有關一般條款規定，及一般條款之解釋原則是否有適用。 第三章「公用事業利用關係之法律性質及其救濟途徑」：公法關係之爭議，歸行政法院審判；私法關係之爭議，歸普通法院審判。公營公用事業與用戶之利用關係為公法或私法關係，其救濟途徑如何。 第四章「公用事業一般條款之行政監督」：基於分析我國公用事業一般條款之實例，與用戶有關之權益，如：一、公告應記載或不得記載事項；二、公用事業之強制締約義務；三、公用事業一般條款之提示及合理審閱期間；四、核准公用事業一般條款；五、核定公用事業之費用；六、公用事業拒絕供應之監督等加以探討，且目的事業主管機關就該等情形，依法規應給予如何之監督。 第五章「公用事業一般條款之競爭監督」：公平交易法之立法目的係為確保公平競爭，保障消費者利益，在何種情況下認定公用事業一般條款有限制競爭或不公平競爭時，依法進行競爭監督。有關公用事業一般條款之競爭監督問題包括：一、公營公用事業是否受公平法規範？二、公用事業一般條款，目的事業主管機關之行政監督與公平交易委員會之競爭監督產生競合時，如何適用公平交易法第四十六條規定。三、公平會依公平法第十條及第二十四條監督時，其監督內容為何？ 第六章「結論與建議」：提出本論文之結論與建議。在行政監督方面，法規賦予目的事業主管機關之監督，仍有缺失之處，為期許行政監督之更完善，本文提出建議，作為修法之參考。在競爭監督方面，公平會依公平法第十條及第二十四條所為的監督，就目前監督之情形，提出建議。
並列摘要
Abstract Owing to capitalism rose and developed, enterprisers started to produce lots of products, to sign lots of contracts. It has been causing the problem of the standard contracts that has changed the freedom rule of contracts. And the result of using general terms deprived consumers’ rights. Fortunately, Consumers of Protecting Law and part of Civil Law have general terms which relate to this issue. Thus, firstly, the study interviewed the problems of public utilities general terms. These public utilities include such as raining water, electric power, gas, subway, rapid transport, telephone, telegraph career that relate to the people’s life. It is worth to explore whether the people should accept government oversight or competition oversight strictly or not. Next, the study researched the application of Consumers of Protecting Law and Civil Law in public utilities. Two lawsuit systems are adopted In Taiwan. Administrative Courts judge public issues and Common Courts judge private issues between two parties. It is necessary to identify the legal essence and the repair of public utilities utilizing relation, because Government－owned public utilities’ organizes are different. Some of them are set up by government, or some of them have more than half amount stocks by government but take part in private economic activities, or some of them are built in connecting people and things for administrative purposes. It is necessary to oversee general terms for avoiding business managements utilize force position to draw up unfair general terms causing the users’ damage. Overseeing general terms have three methods- legislating, judicial and government. Public utilities offer goods and service which are people’s necessaries mostly and it is no possible of being substituted, so it should strengthen various overseeing public utilities general terms. However, it is not sufficient for user to seek judicial repair. The good way is to norm public utilities general terms that can protect the users’ rights, because it is more actively, initiative and prevention of government oversight and competition oversight. Therefore, the study involved collecting cases which use public utilities general terms, and then, to analysis the repair relationship between public utilities and users. The following is the study’s major contents. Chapter One—“Introduction”：it demonstrated the research motives、methods and field. Chapter Two—“The connection between public utilities utilizing and general terms”: it discussed whether the general terms could be used in public utilities utilizing, and if Consumers of Protecting Law and Civil Law could rule and explain the general terms. Chapter Three—“The legal essence and the repair of public utilities utilizing relation”: public issue is judged by Administrative Courts; private issue is judged by Common Courts. Shortly, the study is to explore the legal essence and the repair of public utilities utilizing relation. Chapter Four—“Government oversight of public utilities general terms”: Analyzing the cases of public utilities general terms that concerning consumers’ rights, for examples: （a）Notice context which should be recorded or not; （b）It is compulsory to sign contract of public utilities; （c）Submission and reasonable reviewing terms of public utilities general terms; （d）Approving public utilities general terms; （e）Deciding the expenses of public utilities; （f）Overseeing public utilities when reject to supply; Chapter Five—“Competition oversight of public utilities general terms”: the purpose of Fair Treat Law is to protect fair competition and consumers’ benefit. Fair Treat Law exercise competition oversight when public utilities general terms make competition restricted or unfair. The problems of public utilities general terms competition oversight include: (a) If the norms of Fair Treat Law are adopted by Government －owned public utilities? (b) It is how to apply Fair Treat Law §46, when government oversight and competition oversight conflict in public utilities general terms? （c）What are the contexts that Fair Treat Commission oversee public utilities in Fair Treat Law §10, §24？ Chapter Six—“Conclusion and Suggestion”: the study found the faults in government oversight, so provide the suggestion that revise the Law for promoting government oversight. In accordance with Fair Treat Law §10, §24 that Fair Treat Commission should oversee public utilities and provide the suggestion for the situation of competition oversight.