PPP模式下政府法律责任问题研究

发布时间：2018-05-28 11:09

本文选题：PPP协议 + 诚信责任　；参考：《辽宁大学》2017年硕士论文

【摘要】：PPP模式运用于城市基础设施建设中,实现了给付行政的现实需求。然而,由于政府在项目中享有行政优益权,在现有法律未对政府法律责任进行具体规定的情况下,造成政府怠于承担法律责任的现象屡见不鲜。作为PPP项目基础的PPP协议具有混合性,即民事性与行政性。民事性体现在政府部门与社会资本是合作关系,双方基于平等的法律地位进行协商约定双方的权利义务关系,因而政府部门存在承担民事法律责任的可能性。行政性指的是政府是PPP项目的提供者、监管者,政府部门及政府官员行政权力的不当行使易导致政府部门怠于承担诚信责任、监管责任、风险分担责任,此时应当要求政府部门承担行政法律责任。在研究政府法律责任的问题上,本文思路如下:首先,分析PPP模式中应当要求政府承担法律责任的法理依据及法律规定,对政府法律责任的构成展开讨论;其次,实践中政府怠于承担诚信责任、监管责任与风险分担责任导致PPP项目失败的例子很多,政府对此应当承担法律责任。分析政府怠于承担上述责任的原因并找出解决对策,包括完善PPP立法、确立政府行为的基本准则、加强监管机制等;最后,从纠纷解决机制角度讨论应当如何追究政府的法律责任。对政府法律责任进行划分包括民事法律责任和行政法律责任。政府不同的法律责任应当有不同的纠纷解决途径,根据政府行为的性质、政府的法律地位等综合判断。适用协商、民事诉讼及仲裁途径追究政府民事法律责任时,应当注意到政府行政权力是否会在纠纷解决中造成不利影响。新《行政诉讼法》的出台为解决PPP协议下政府的行政法律责任提供了法律依据。在具体讨论了政府部门应当对社会资本应当承担的法律责任前提下,本文分析了社会公众在项目中受到损害时政府部门承担法律责任的三种情况,为保护社会公众的合法利益提出了自身见解。《政府采购法》、国务院部门及地方政府出台的一系列规范性法律文件如《PPP项目合同指南》等对于政府与非政府组织之间的法律关系作出了规定,而新行政诉讼法及司法解释对适用行政诉讼解决政府行政法律关系提供了法律依据,有效地限制了政府的行政权力、保护了相对人和其他利害关系人的合法利益。因此在PPP项目中发生政府怠于承担法律责任的行为时,根据政府主体的地位、法律关系的构成、损害行为的性质、法律责任的承担情况来综合判断,提出适用的救济机制,从而实现规范PPP模式下政府应当承担法律责任的目的。
[Abstract]:The PPP model is applied to urban infrastructure construction, which realizes the realistic demand of the administration of payment. However, because the government has the right of administrative benefit in the project, it is common for the government to bear the legal responsibility without the specific provisions of the existing law. The PPP protocol, which is the foundation of PPP project, is mixed, that is, civil and administrative. The civil nature is reflected in the cooperative relationship between government departments and social capital. The two sides negotiate and agree on the relationship of rights and obligations based on equal legal status, so the government departments have the possibility to bear civil legal liability. Administration refers to the government is the provider of PPP projects, regulators, government departments and government officials of the improper exercise of administrative power is likely to lead to government departments to bear the integrity of responsibility, regulatory responsibility, risk sharing responsibility. At this time, government departments should be required to assume administrative legal responsibility. In studying the problem of government legal responsibility, this paper has the following ideas: firstly, it analyzes the legal basis and legal provisions of the PPP model which should require the government to bear legal responsibility, and then discusses the constitution of the government legal responsibility. In practice, there are many examples of the failure of the PPP project caused by the responsibility of supervision and risk sharing, for which the government should bear the legal responsibility. Analyze the reason why the government is lazy to assume the above responsibility and find out the countermeasures, including perfecting the PPP legislation, establishing the basic standard of government behavior, strengthening the supervision mechanism and so on. From the angle of dispute settlement mechanism, the author discusses how to investigate the legal responsibility of the government. The division of government legal liability includes civil legal liability and administrative legal liability. Different legal responsibilities of government should have different ways to resolve disputes, according to the nature of government behavior, the legal status of government and so on. When applying negotiation, civil action and arbitration to investigate the civil legal liability of the government, we should pay attention to whether the administrative power of the government will have a negative impact on the settlement of disputes. The introduction of the new Administrative Litigation Law provides a legal basis for solving the government's administrative legal liability under the PPP Agreement. On the premise of discussing the legal responsibility of the government department to the social capital, this paper analyzes the three kinds of cases of the government department bearing the legal responsibility when the public is damaged in the project. In order to protect the legitimate interests of the public, put forward their own views. "Government Procurement Law", the State Council departments and local governments issued a series of normative legal documents such as "PPP Project contract Guide" for the government and non-governmental organizations The legal relationship between The new administrative procedure law and judicial interpretation provide a legal basis for the application of administrative litigation to solve the administrative legal relationship between the government, effectively limit the administrative power of the government, and protect the legitimate interests of the counterpart and other interested parties. Therefore, when the behavior of the government in the PPP project is slack to bear the legal responsibility, according to the position of the government subject, the constitution of the legal relationship, the nature of the damage act, and the assumption of the legal liability, the author puts forward the applicable relief mechanism. In order to achieve the standard PPP model, the government should bear legal responsibility.
【学位授予单位】：辽宁大学
【学位级别】：硕士
【学位授予年份】：2017
【分类号】：D922.181;D922.2

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