公私夥伴關係(PPP)於歐盟法制下發展之初探：兼論德國公私合營事業（組織型之公私夥伴關係）適用政府採購法之爭議

A Preliminary Review of the Development of Public-Private Partnership (PPP) in the European Union Law: With Special Reference to the Controversies over the Application of Government Procurement Law to the Semi-Public Undertaking (Institutionalised PPP) in Germany

劉淑範(Shwu-Fann Liou)

《臺大法學論叢》 40卷2期 (2011/06) Pp. 505-568

https://doi.org/10.6199/NTULJ.2011.40.02.02

摘要

真正促使德國各界近年來熱絡討論與運作公私夥伴關係之主要動力，允應歸功於歐盟執委會於2004年所公布之關於公私夥伴關係綠皮書。緣此，本文乃從歐盟法制之觀察視野，對公私夥伴關係於德國學說與實務之發展，作初步性之探討。首先緒論部分，在概略說明民營化之概念與類型後，進而論析公私夥伴關係概念之緣起、引進與發展。簡言之，公私夥伴關係從曩昔美國非型式化之協商合作方式，近期在歐盟和德國已演進成為以契約為基礎之型式化公私夥伴關係。甚又，在前揭歐盟綠皮書之影響下，德國學說與實務當前之討論重心，厥為專案取向之公私夥伴關係，此乃以專案計畫之生命週期為導向。其次第貳部分，本文先以專案取向之公私夥伴關係概念為主要之框架，檢視當前在德國行政實務上運作之各種重要模式。之後，再參酌歐盟綠皮書之區分架構以及歐盟政府採購法之新興概念，將公私夥伴關係簡化梳理成一般契約型之公私夥伴關係、特許模式和組織型之公私夥伴關係三大類型，進而嘗試作法釋義學上之初步分析，並探討此等類型與民營化概念之交錯關係，俾供未來續造整體民營化法制之理論基礎。繼於第參、肆部分，本文擇取組織型之公私夥伴關係類型，並以德國之公私合營事業為中心，在簡陳此一類型公私夥伴關係之演進歷程後，進而佐以歐洲法院之兩項原則性判決，剖析「自家採購」之準則以及政府採購法於此一範疇之適用爭議。
值茲我國政府亦提出公私夥伴關係政策之際，本文乃借鏡他山之石，以期對未來之本土發展拋磚引玉。

關鍵字

歐洲聯盟歐洲共同體 ； 民營化 ； 公私夥伴關係 ； 專案取向之公私夥伴關係 ； 契約型之公私夥伴關係 ； 特許模式 ； 組織型之公私夥伴關係 ； 公私合營事業 ； 自家採購

並列摘要

What prompted the earnest discussion and putting into practice of PPPs was the promulgation of the Green Paper on PPPs by the EU Commission in 2004. For this reason, this study utilizes a perspective of EU law and provides a preliminary review on the development of PPP in the theory and practice in German administrative law. In the introduction, after a brief description of the concept and types of privatization, more in-depth discussion is devoted to the genesis, introduction and development of PPP in Germany-chartering its evolution from informal partnerships in its early life in the US, to formal PPPs founded on contracts in Europe and Germany. Further, influenced by the above-mentioned Green Paper, the present-day discussion in Germany focuses on the project-oriented PPP (”Projekt-PPP”), which is organized by the life cycle of the projects concerned. In Part 2, the major models of PPP in the administrative practice in Germany under the framework of project-related PPP are reviewed. Thereafter, adopting the typology in the Green Paper and the new idea in the EU Procurement Law, the PPP is divided into three categories: the typical contractual PPP, the concession, and the institutionalized PPP. On each category preliminary doctrinal analysis is provided, and their overlaps with privatization are discussed, to pave the way for the future design of a holistic legal regime on privatization. In Part 3 and 4, the focus is put on the institutionalised PPP, specifically the semi-public undertakings in Germany. After introducing its basic evolution, and relying on two seminal decisions of the ECJ, this paper provides an analysis on the guidelines of in-house procurement and the controversies over the application of government procurement law to the semi-public undertakings.
At a time when the Government in Taiwan is deliberating its policy on the PPP, it is the intent of this article to provide a preliminary systematic study on the institution of the PPP, from a comparative perspective, and it is hoped that such an attempt will attract more input into the current discussion.

並列關鍵字

European Union European Community ； privatization ； public-private partnership ； projekt-PPP ； contractual public-private partnership ； concession, institutionalised public-private partnership ； semi-public undertaking mixed enterprise ； in-house procurement

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