欧盟公共采购立法中的特许合同指令述评

A Review of the Concessions Directive in the EU Public Procurement Legislation

在欧盟2014/23号特许合同指令颁布实施前,公共部门的工程特许仅受2004/18号公共部门指令的调整,而公共部门的服务特许和公用事业部门的工程特许仅通过《欧洲联盟运行条约》中的一般原则来调整。特许合同领域缺乏统一立法的这一漏洞,不仅导致了欧盟内部市场的严重扭曲,也造成了特许授予在法律上的不确定性。2014/23号特许合同指令的通过,使得工程特许和服务特许有了统一立法的规制。然而,2014/23号特许合同指令在内容上与2014/24号公共部门指令出现了大量重复,同时又缺乏独立的授予程序,并未突显特许合同授予的独特性。在当前中国PPP(Public-Private Partnership,政府和社会资本合作)项目规模不断扩大的情形下,这一领域却陷入了政策衔接的困境。因此,中国应借鉴欧盟特许合同指令的经验与不足,将主要PPP模式统一到特许经营法下,尽快出台一部独立的特许经营立法。

As the EU Concessions Directive enacted before,works concessions in the public sector did fall within the ambit of Directive 2004/18 Public Sector Procurement. Service concessions in the public sector and works concessions in utilities sectors were only subject to the general principles of the TFEU. This loophole gives rise to serious distortions of the internal market as well as legal uncertainty in the award of concessions. The EU Concessions Directive is a uniform legislation for the public works concessions and services concessions. However,most of the general provisions of the EU Concession Directive are a copy of provisions already Available in Directive 2014/24 Public Sector Procurement. Although the sui generis of the concessions,there is no independent procedures for the award of concessions. With the PPP projects increasingly expanded in China,a new legislation shall be adopted to regulate this area. Since concession contracts are one form of PPP and thus there is a compelling case for a legislative initiative on concessions on the grounds of EU Concessions Directive.