PPP模式法律制度完善研究

发布时间：2018-03-29 04:30

本文选题：PPP　切入点：公私伙伴关系　出处：《河北大学》2017年硕士论文

【摘要】：PPP模式是一种起源于西方的国家的新型公共事业发展发展模式,在这一模式下,政府与私人资本有效结合,各自发挥其优势,从而达到提升公共服务质量,提高私人资本投资积极性,减轻政府负担的目的。在我国PPP模式改革开放后经历了从初期的单一发展阶段到普及应用阶段后,随着近年来中央政府对PPP模式地鼓励政策,进入了全面加速发展阶段。然而,这种高速地发展就必然暴露许多实际问题。在实务中,社会私人资本对于PPP项目参与积极性较低,法律监管制度实际运行能力较差,从而引发PPP模式项目整体发育不良。理论学界从未停止过对PPP模式法律理论探索研究,政府公共部门中发改委与财政部先后出台一系列相关规定和指导性文件,财政部还在中央行政部门的层面上建立了PPP模式领导小组和PPP中心,以期对该模式得具体实践进行规范和指导。但这些理论研究和管理制度的构架,相比于我国PPP模式的现实规则需要,仍然杯水车薪。这些问题的根源在于适应我国PPP模式发展和实际运行的法律制度并未真正建立,现行规范下的法律制度基础法律关系定位不清、具体规范异常粗糙且漏洞百出、监管体系混乱,难以调动PPP模式各方的参与积极性。首先,法律制度本身实际运行能力较低,基本法律规则适用混乱,法律性规范文件政出多门相互冲突,程序规则操作性差,模式示范性合同粗陋。其次,政府公共部门在参与PPP模式中“合作者”与“监管者”角色重合,致使政府公共部门信用评价较低,项目运行全周期“权力寻租”严重,监管制度无法有效运行。最后,PPP模式的纠纷和争议解决机制不合理,在不同法律关系下纠纷争议救济途径适用混乱,救济途径单一,参与各方没有有效的途径保证其合法权益得到应有地保护。在本文中笔者通过对PPP模式基础法律概念地分析,确定PPP模式内部法律关系的理论属性,结合PPP模式实际运行中的法律问题,提出的主要观点为:第一,在PPP模式法律规范制定的“灵活性”与“稳定性”矛盾中,应当侧重于法律规范的“灵活性”,以契合现阶段我国PPP模式发展正处于青春期的基本现状。将PPP项目合同关系适用民商事规则,保证PPP模式合作具体内容的自治性。在法律规范地制定上应先完善基础的实用性规则,待整个法律制度建立后再将其固定于法律条文之上。第二,对于政府公共部门的“合作者”与“监管者”法律地位,应具体分析不同情况下政府公共部门行为的法律属性,将其行使PPP项目合同权利时的法律地位归属于PPP项目的“合作者”,行使行政监管权利时的法律地位归属于PPP项目的“监管者”,从而理顺PPP模式参与各方法律关系。第三,在纠纷争议的解决机制方面,承接上文的分析结论,将区分不同法律性质的纠纷争议,分别适用民事和行政救济途径。同时探索引入仲裁这种新的纠纷争议解决机制,解决现行机制中审判机关与争议纠纷双方存在关联、审判工作人员专业性差,难以公平公正审判的问题。
[Abstract]:The PPP model is the development of new mode of development of public utilities which originated from western countries, under this model, the effective combination of government and private capital, make full use of their own advantages, so as to improve the quality of public services, improve the private capital investment enthusiasm, reduce the government burden. Experienced in PPP mode in China after the reform and opening up from a single initial stage of development to the popularization and application stage, with the central government in recent years to PPP mode to encourage policy, entered a stage of accelerated development. However, this high-speed development will inevitably expose many problems. In practice, social and private capital to participate in PPP projects lower enthusiasm, ability poor practical operation of legal supervision system, which lead to PPP model project overall dysplasia. Academic circles have never stopped exploring research on the PPP mode of legal theory, the government in the public sector The NDRC and the Ministry of finance has issued a series of regulations and guidance documents, the Ministry of finance is still the central administrative level to establish a PPP model of the leading group and the PPP center, in order to get the model to standardize and guide practice. But the framework of theoretical research and management system, compared to China's current rules PPP mode, still. The root of the problem lies in an utterly inadequate measure has not really established legal system to adapt to the development of China's PPP model and the actual operation of the positioning of the current norms under the legal system of the basic legal relationship is not clear, specific norms extremely rough and the supervision system of chaos, Its loopholes appeared one after another., PPP mode is difficult to mobilize the enthusiasm of all parties involved first. The legal system itself, the actual operation ability is low, the basic legal rules for legal documents confusion, each department acting on its own conflict with each other, the rules of procedure of operation, mode Demonstration contract crudeness. Secondly, the government departments in the public participation in PPP mode of "cooperation" and "regulator" role overlap, resulting in credit evaluation of public sector is relatively low, the project operation period of "power rent-seeking" serious supervision system can not work effectively. Finally, to solve the dispute mechanism of PPP mode is not reasonable the dispute, dispute relief way for confusion in different legal relations, the relief way is single, the parties involved no effective way to ensure the legitimate rights and interests should be protected. In this paper the author of the legal concept of PPP model based on attribute theory to determine the internal legal relationship of PPP model, combined with the legal problems in the actual operation mode of PPP the main idea is: first, the contradiction in the PPP model formulation of legal norms "flexibility" and "stability", should focus on the law" Flexibility "to fit the present stage of China's PPP mode of development is in the basic situation of adolescence. The PPP project contract for civil and commercial rules, guarantee the autonomy of the PPP model. The specific content of cooperation in practical rules to improve the basic legal norms in the formulation should be, the whole legal system after the establishment of the fixed to the legal provisions. Second, to the government of" cooperation "and" regulator "legal status, legal attribute specific analysis under different conditions of government public behaviour, the legal status of the exercise of the PPP project contract rights attributable to the PPP project" partners ", the legal status of administrative supervision right belonging to the PPP project" regulator ", to straighten out the PPP mode in the legal relationship of all parties. Third, in the dispute settlement mechanism, undertake the analysis of the above theory, the Distinguish between the legal nature of the dispute, respectively for civil and administrative remedies. At the same time to explore the introduction of the new arbitration dispute settlement mechanism, judicial organs and solve the disputes in the current mechanism both sides are related, poor professional personnel in judicial work, it is difficult to fair trial.

【学位授予单位】：河北大学
【学位级别】：硕士
【学位授予年份】：2017
【分类号】：D922.2;D922.181

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