Abstract
摘要:德國民營化的理論及實踐,自從國家角色定位於二次大戰後的劇烈轉變成為全國共識後,即有相當多的學術研究成果出現,不論是最早於1950年代Ispen在其論文「Indienstnahme Privater für Verwaltungsaufgaben」到1970年代的Ossenbühl及Gallwas在1971 Speyer德國公法教師年會上的主題報告,至1994年在Halle 舉行之德國公法教師公會上的主題「Privatisierung von Verwatungsaufgaben」1996年的年會主題「Verwaltung und Verwaltungsrecht zwischen gesellschaftlicher Selbstregulierung und Staatlicher Steuerung」,由Schmidt-Preuß及U. Di Fabio所作的主題報告及2003年在瑞士St. Gallen舉行的公會第二主題”öffentliche Gemeinwohlverantwortung im Wandel“,均與「民營化」的理論發展有密切的關連性,從而,「民營化的理論」即成為德國公法學者必須涉獵討論的焦點議題,而且德國亦在時實務上付諸實踐,包含公營事業的民營化到任務的大量民營化,均予以看出德國理論與實踐的結合。
德國對民營化的定義及分類雖然十分歧異,但是大略可以分成形式的民營化(Formelle Privatisierung),意即組織的民營化;及功能的民營化(Funktionale Privatisierung)或稱為任務的民營化二大類型,雖有部分學者列舉民營化有多達13種類型(G. Kirchhof,AÖR 2007,S.215ff.)但其實乃係前述二種類型更為細緻的變型。本文認為可以再包含有所謂「行政行為形式的民營化」,諸如:合作型契約的出現及PPP型態的出現。準此已言,本研究計畫將分成三年針對不同類型的民營化為深入之討論,並對我國民營化的實況作出反省性之比較分析,藉以由德國民營化理論之檢討分析,藉以做為檢驗我國民營化成效之張本。
第一年:行政組織的民營化,兼論我國國營事業的民營化。
第二年:行政任務的民營化:討論委外的界限及法律保留原則問題。
第三年:行政行為形式的民營化:討論合作契約及PPP。
民營化不得使行政任務的公共性喪失,為了確保民營化與公共性的平衡(即不得私人化及財團化),所以法律理論及制度之設計,甚具關鍵重要,而德國法上所發展出的理論及制度,例如:憲法上的擔保責任理論、法律保留原則、行政委託(Beleihung)行政效能及彈性均可作為他人之石,以供我國制度調整或建立的方針指標。
Abstract: Since world war two, the theories and practices of German Privatization have been
significant due to drastic transition of the characterization of German government. As
early as 1950, Ispen had a thesis on Indienstnahme Privater fur
Verwaltungsaufgaben. During the 1970’s, Ossenbuhl and Gallwas presented a keynote
speech on the 1971 Speyer German Public Law Lecturers` Association. In 1994, the
theme of German Public Law Lecturers’ Association held in Halle was “Privatisierung
von Verwatungsaufgaben.” Theme for 1996 was “Verwaltung und
Verwaltungsrecht zwischen gesellschaftlicher Selbstregulierung und Staatlicher
Steuerung.” The keynote report by Schmidt-preus and U. Di Fabio and the second
theme of the association held in St. Gallen Swiss in 2003 was “offentliche
Gemeinwohl verantwartung im Wandel,” both were closely related to the
theoretical development of “Privatization.” Thereafter,“Theory of Privatization” has
become a starting point that scholars in German Public Law have to engage in and
discuss about. Moreover, Germany also put the theories into practice. Privatization of
government run industries and government obiligations has shown the intergration of
German theories and practices.
Although the definition and categorization of privatization in Germany is very
heterogeneous, in general, privatization can be categorized into Formal Privatization,
also known as privatization of organization, and Functional Privatization, also known
as privatization of government obligations. Some scholars list the categories of
privatization up to 13 kinds, but they actually derive from more definite categorization
of the aformentioned two basic categories.(G. Kirchhof,AOR
2007,S.215ff.)This research argues that another category of Privatization of
Administrative Behavior can be added, such as cooperative contract and the PPP model.
Accordingly, this proposal intends to deeply investigate into the different types of
privatization in 3 years, and make comparative and critical analysis on the current
practices of privatization in Taiwan. By examing theories of German Privatization, this
research will be able to examine the arugments on the effects of privatization in Taiwan.
First year: Privatization of Administrative Organization and Privatization of
Taiwan’s Government Run Industries.
Second year: Privatization of Administrative Behavior on Cooperative Contract
and PPP.
Third year: Privatization of Administrative Behavior on the limits of outsourcing
government obligation and issues about principle of legal reservation.
Privatization should not undermine the public mission of government obligations.
To reach a balance between privatization and public concerns such as not to personalize
and monopolize certain industries, legal theories and systemic design is of great
importance. Theories and system design in German Law, such as Constitutional
Obiligation Theory, principle of legal reservation and Beleihung can all shed light on
our system reform and set as indicators for system establishment.
Keyword(s)
民營化
功能民營化
組織民營化
促參法
效能
Privatization
Function-Privatization
Organization-PrivatizationEfficiency