- 學位論文
BOT專案興建期間政府角色之研究
A Study into the Role of the Government During Construction of BOT Projects.
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摘要
近年來為了促進社會大眾公共利益，政府積極地興建各項公共建設，由於投入公共建設需耗費龐大支出，於是政府推動不同類型之民間參與模式引入民間之資金及技術，而BOT模式為民間參與公共建設之其中一種模式。以BOT精神，政府將專案交由民間機構自行興建並營運，民間機構可藉由營運階段回收興建投資成本，甚至可賺取利潤，因此其在專案興建階段也會顧及到專案品質，政府亦可藉此減輕主導及品管監控的行政負擔，讓民間機構發揮自主管理精神。不過，促參案件在實務上卻時常發生較嚴重的興建品質不良、服務水準不符需求、附屬事業規模反客為主等問題，引發諸多損害。公共利益的質疑，導致政府在專案監督上是否善盡職責，或者在監督強度上是否拿捏得當，都成為需重新檢視的課題。 本研究經彙整分析國內促參相關法令規範及契約範本後，發現興建階段常發生上述問題的主要原因，可能不在現有法令規範及品質管控機制的訂定有何不當，而是來自執行面未能充分理解與善用既有監督管理機制的問題。本研究以能力、流程、約束力三項達成品質保證之成功關鍵軸向，進一步闡述各項現有監督管理機制應如何視主辦機關條件做適當的搭配，才能發揮實質效果，落實BOT模式下政府不過度干預又能有效督導建設品質的目標。 關鍵詞：BOT、興建期間、品質控管、政府角色
並列摘要
In recent years, the Taiwanese government has been active in producing various types of public infrastructure construction projects in an effort to promote public welfare. As public infrastructure projects generally require substantial monetary and resource expenditures, the government began to push for using methods of public private partnerships in order to incorporate funding and expertise from the private sector to achieve such projects. One of the forms of public private partnership is the Build-Operate-Transfer (BOT) project type, where the quintessential principles involve the government entrusting the construction and operation of public projects to the private sector. Through operation of the projects, the private sector is afforded the ability to recover and even make profits that potentially grow beyond the initial costs and investments expended during construction. This potential, therefore, provides the private sector with incentive to properly monitor the quality of the project during the construction phase, which in turn lessens the burden of the government to maintain strict overseeing and quality control measures, since the private sector would be self-motivated to exercise necessary management procedures. However, public private partnerships in practice throughout Taiwan tend to suffer from problems such as poor construction quality, level of service during operation not meeting standards set in the contract, and private sectors undertaking changes to the project in favor of subsidiary businesses. Such issues contribute to the lack of success for BOT projects, calling into question the extent of public welfare actually generated from the projects. Such concerns prompt discussions as to whether the government has dutifully fulfilled the supervision role, as well as how much the government should actively supervise throughout the projects. Through collection, organization, and analysis of relevant public private partnership laws, regulations, and model contracts, this study found that the issues stated above that occur during the construction phase of BOT projects may not necessarily be due to deficiencies in the laws, regulations, or quality control management measures themselves. Rather, problems tend to arise because the existing supervision management measures available tend to be underutilized or properly understood. This study focused on capability, process, and binding compulsion, as the three key factors for determining successful quality assurance. Furthermore, the study set to expound on how to best align the available existing supervision management measures associated with each key factor with specific preconditions of the main organizing party of a project. This would serve the purpose of allowing projects the potential to accomplish the ideal principles of the BOT method, where the government can achieve the goal of effective supervision of construction quality without the need for excessive intervention. Key words: Build-Operate-Transfer (BOT), construction phase, quality control, role of the government
參考文獻
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