政府参股PPP项目公司法律地位:理论反思与标准建构

The Public Share-holding PPP Project Company's Legal Status:Theory Rethink and Criterion Construct

政府参股PPP项目公司为公、私部门合力载体,其不同质的股权结构对二元法律地位理论形成了冲击。域外法学理论对此类公司法律地位的认定分歧较大,其中作用法理论标准抓住了问题的本质,然而该理论的关键要素——行政权力属模糊、变动之概念,导致该标准不准确。公、私法人区分的实质意义是市场规制方式的选择。以政府参股PPP项目公司在相关市场中是否处于国家独占经营地位作为判断标准,可起到另辟蹊径的规制效果。

The PPP project company with public shareholder is the combination of the public and private sector. It poses a great challenge to the dualism of legal status theory because of its different shares. There are divergent views to this issue in extraterritorial PPP practice and judicial practice. Function method theory is reasonable because it bases on the mission feature. But the key element of the function method theory, administrative power, is an obscure and changing notion that leads to less accuracy. The essence of distinguishing Public/Private Organization is to safeguard the market orders. That depends on different regulation methods and means. The public service could distinguish monopolized industry with competitive industry. Whether the PPP project company with public shareholder acquires a state monopoly position or not determines its legal status. Therefore, regulations around this criterion should be established.