政府合同概念的体系化重构

Systematic Reconstruction of Concept of Government Contract

现有政府合同管理规范对政府合同的内涵和外延进行了界定,但学理意义上的概念构造尚未完成,“政府合同=行政协议+缔结主体一方为行政机关的民事合同”之结论存在缺陷。通过把合同还原为通用于各部门法的中性工具,将政府合同的研究视角从救济前移至行政过程,政府合同的识别标准被调整为“行政机关与任何主体订立的合同均为政府合同”。以行政任务为出发点,可将政府合同区分为公务型政府合同和管理型政府合同,公务型政府合同可被进一步区分为内部公务型政府合同与外部公务型政府合同。以救济途径为落脚点,可以将政府合同区分为行政协定与非行政协定,非行政协定可被进一步区分为行政协议、民事合同、磋商性文件和劳动人事协议,其中,民事合同和行政协议属于狭义政府合同。将两条基于不同场景的体系化路径进行对接与融合,有助于形成对政府合同概念相对立体的认知,动态还原政府合同概念的全貌。

The existing government contract management norms have defined the connotation and extension of government contracts,but the construction of the theoretical concept has not yet been completed.The conclusion that“government contracts equals administrative agreements plus civil contracts concluded by one party as an administrative organ”is flawed.By reducing the contract to a neutral tool common to all sectoral laws,and shifting the research perspective of government contract from relief to the administrative process,the identification standard of government contract is adjusted to“the contract concluded between the administrative organ and any subject is a government contract”.Taking administrative tasks as the starting point,government contracts can be divided into official government contracts and management government contracts.Official government contracts can be further divided into internal official government contracts and external official government contracts.Taking the way of relief as the landing point,government contracts can be divided into administrative protocols and non-administrative protocols.Non-administrative protocols can be further divided into administrative agreements,civil contracts,consultative documents,and labor-management agreements,of which civil contracts and administrative agreements belong to government contracts in the narrow sense.Matching and integrating the two systematization paths based on different scenarios helps to form a relatively three-dimensional perception of the concept of government contracts and dynamically restore the full picture of the concept of government contracts.