PPP协议的法律性质及其救济——以德国双阶理论为视角

Legal Nature and Relief of PPP Agreement:From the Perspective of German Two-Step Theory

理论上对PPP协议的法律性质尚存在较大争议,这种理论争议已经在一定程度上引发PPP协议纠纷法律救济的混乱,立法上的矛盾和司法上的不统一,则让此种混乱进一步加剧。运用德国修正双阶理论,将PPP协议的法律性质重新界定为"行政处理+民事合同"和"行政处理+行政合同"模式,既可以实现理论上的逻辑自洽,又可以满足各方主体对PPP协议法律救济的现实需要。具体而言,将PPP协议签订前的行为界定为行政处理行为,适用行政救济途径解决纠纷,将PPP协议签订后的行为原则上视为民事合同,适用民事救济途径,并根据行为的性质和争议的内容以行政救济作为补充。同时,当民事救济途径和行政救济途径发生争议时,赋予私人部门救济途径的选择权,相关救济机构应当予以尊重和支持。最后,努力将仲裁打造成PPP协议纠纷解决的主渠道。

There are still some disputes about the legal nature of PPP agreement in theory. To a certain extent, this theory dispute has caused the confusion of the legal remedy of the dispute of PPP agreement. The contradiction of legislation and the disunity of judicature exacerbated the chaos. In this paper, the author redefines the legal nature of PPP agreement as“administrative treatment + civil contract”mode and“administrative treatment + administrative contract”mode by using German modified two - step theory,which can realize the logical self - consistency in theory,and also meet the practical needs of the parties to the legal relief of the PPP agreement. Specifically, the behavior before the signing of the PPP agreement is defined as the administrative handling act,and the administrative remedy is applied to solve the dispute. The behavior after the signing of the PPP agreement is regarded as a civil contract in principle. Civil remedies should be applied,and administrative remedies should be supplemented according to the nature of the act and the content of the dispute. At the same time,when there is dispute between the civil relief and administrative remedies, the private sector should be given the right to choose relief channels,and the relevant relief agencies should respect and support. Finally, arbitration should be established as the main channel to resolve of PPP agreement dispute.