PPP协议纠纷多发之成因、预防与治理——基于政府与社会资本方双重视角

Research on the Frequent Disputes of the PPP Agreement:Causes,Preventionand Governance——Based on the Dual Perspective of the Government and the Social Capital

PPP协议在履行过程中遭遇公众质疑行政正当性、社会资本方忧心行政诚信、纠纷解决方式混乱等困境而引发大量争讼案件。PPP协议纠纷多发的主要原因在于行政管理理念的不契合、行政法规制的阙如、协议法律属性的不确定。从理念、制度、机制三层次着手,引入与PPP模式运行相契合的契约治理、合作行政新行政法理念,改变行政协议在行政法教义学理论中的辅助地位;从确立协议属性实质审查原则和分段救济处理方式两方面建立协议属性区分制度;明确协议的签署需具备所有权条款、兜底条款、纠纷解决条款,是减少PPP协议纠纷多发、高发的预防与治理对策。

During the implementation of the PPP agreement,the public questioned the legitimacy of the administration,the social capitalists worried about the administrative credibility,and the way to resolve the disputes was chaotic,which caused a large number of lawsuits.The main causes of the PPP agreement disputes are the incompatibility of the administrative concepts,the lack of the administrative law,and the uncertainty of the legal nature of the PPP agreement.Starting from the three levels of concept,system and mechanism,this paper introduces the new administrative law concept of contract governance and cooperative administration,which is compatible with the operation of the PPP mode,and changes the auxiliary position of the administrative agreement in the doctrine of the administrative law;establishes the clear criteria for distinguishing the legal nature of the PPP agreement from the two aspects of building the principle of substantive review of agreement attributes and the way of dealing with piece wise relief;the signing of the agreement should have the ownership clauses,the bottom clause and the dispute settlement clause.These are the prevention and control measures to reduce the frequent disputes of the PPP agreement.