数字政府建设政企合作法律风险的规制模式

Legal Risks and Regulatory Modes of PPP in Digital Government Construction

数字政府建设政企合作的目标是公私协力实现公共给付,以数字化赋能中国式现代化。相较于传统公共服务领域,数字政府建设政企合作存在数字技术侵权、政府权力迁移、行政优益权履行不能和责任虚化等法律风险,容易产生合作中断、非正常终止等问题,致使合作结果与目标存在差距。政府规制、自我规制和元规制等现有风险规制模式各有优劣,但在面对数字政府建设的特定适用场景时均呈现出捉襟见肘之势,表现为风险防范不足,对互动关注不够,过于强调过程规制而缺乏结果有效性的考量。结果导向型合作规制模式强调结果与目标的一致性、协商与互动、合作绩效与公共问责,对数字政府建设政企合作法律风险的规制更为妥当,并可分为目标规制、过程规制和结果规制三个层面。结果导向型风险规制模式的法律构造为:建构将公共价值嵌入算法的合作机制,并通过风险评估和公民参与程序规避侵权风险;强化信用监管、优化契约机制分别规避政府权力迁移风险和行政优益权履行不能风险,并通过风险管理程序予以实现;明确政企责任分担,并通过公共问责程序规制责任虚化风险。

The goal of the public-private partnerships(PPP)in the construction of digital government is carrying out public service and promoting Chinese modernization via digitalization.Comparing to traditional public services,there are four legal risks in the construction of digital government which are the risk of digital technology infringement,transferring of governmental authority,failure to fulfill administrative priority power,and irresponsibility.These risks could easily lead to some phenomena such as interruption,and abnormal termination,which lead to a gap between the result and the purpose of PPP in the practice of digital government construction.It is difficult for traditional risk regulatory modes,such as governmental regulation,self-regulation and meta-regulation to cope with the risks of PPP in the construction of digital government,the new mode should be introduced under the background of cooperative administrative law.Outcome-based cooperative regulation emphasizes the consistency of result and objective,the commonality of risk identification and the classification of credit supervision,cooperation performance and public accountability,which make it to be a better risk regulation mode for the legal risks of PPP in digital government construction.It can be explained in three levels of target regulation,process regulation and result regulation.Under this mode,the specific risk regulatory paths of PPP in digital government are as follows:building a cooperative mechanism which input public value into the algorithm,and avoiding infringement risks by procedures of risk assessment and citizen participation;strengthening credit supervision and optimizing contract mechanism to avoid the risk of transferring of governmental authority and administrative advantage right failure to perform respectively,which can be achieved by risk management procedures;clarifying the sharing of responsibilities between the government and enterprises,and avoiding the risk of responsibility evasion through public accountability procedure.