公有古蹟委外經營之法制研究

Abstract

為使行政機關調整政府職能與角色，適當活化古蹟；改善政府財政問題，重建人民對政府的信心；結合民間資源參與，提升公共服務的品質與效率；再造政府競爭力，應以公私協力之方式對古蹟進行委外之營運及管理。而委外經營模式，鑑於古蹟委外經營應屬私經濟行政任務下之業務委託，並不須符合行政程序法第15條與第16條之公權力委託正當法律程序。於現行之中央和地方法規之下，古蹟之委外經營模式分以下四種：古蹟之「提供使用」、古蹟之「委託經營」、古蹟之公共建設參與「O.T」模式、古蹟之出租與標租。古蹟為臺灣文化資產之一，屬世界遺產當中之文化遺產範疇，具有經濟、社會和文化方面之影響性，如何永續經營當屬我國文化法制與政策之重中之重，而有效利用公私協力法制委外經營古蹟屬世界潮流。一旦決定要以公私協力（委外）的方式來經營古蹟，公部門須確保私部門經營者具有管理維護文化資產的知識及能力，以確保文化資產保存法內對委外經營之立法規範目的，在私部門經營者的營運之下可以達成，此即國家擔保責任之要求。在分析以上委外模式後，本文認為以O.T模式將古蹟委外經營為最優委外管理方式。理由有五，包括減輕公部門的人事與財政負擔、倚仗民間專業維護文化資產、符合國家擔保責任且公共性得以維護、古蹟出租之法規規範並不完整、委託經營與提供使用之法規被取代性高。另外，本文僅列舉臺北故事館及臺北之家兩案例，歸結出目前O.T委外經營之困境與問題，並於法律層面上試擬解決該等問題之法制建議，再從英國法及國際條約中尋出法制修正建議之借鏡及未來臺灣文化法制所應努力之修正方向，以避免臺灣過於冗長瑣碎之公部門拖累古蹟經營管理任務，確保文化資產教育能普及於全民。

In order to enable our government to properly preserve ancient monuments and enhance the quality and efficiency of heritage management service, there is a need to use the public and private participation mode. This thesis features on the outsourcing of the management of public ancient monuments. With the existing federal and state regulations, the mode of outsourcing the management of ancient monuments can be concluded as follows: 'provision of public monuments', 'entrusted operation' of public monuments, promotion of Private Participation in Infrastructure projects, the rental of public monuments. As one of the cultural heritage, the ancient public monuments have the Impact on economic, social and cultural aspects. However, the sustainability of the public monuments’ management and the public-private cooperation of such task are critical parts of our country's cultural legal system and policy. Once the government decides to run the public monuments through public-private cooperation, the public sector must ensure that the private-sector operators have the knowledge and ability to manage and maintain the cultural heritage so as to ensure that the legislative purposes of the Cultural Heritage Preservation Act are protected. After analyzing the above outsourcing models, this thesis agrees that the O.T model in the Act for Promotion of Private Participation in Infrastructure Projects should be operated as the optimal outsourcing mode. There are five reasons for this conclusion, including reducing the personnel and financial burden on the government, relying on private professions to maintain cultural assets, maintaining governmental interest for public security and safeguarding publicity, the regulations regarding the rental of the public monuments are not complete, last but not least, the regulations regarding the mode of 'provision of public monuments' with the rules about 'entrusted operation' of public monuments are easy to be replaced. Then when it comes to the O.T model which is the optimal legal system of public-private partnerships under heritage management, this thesis lists two cases: Taipei Story House and Taipei House as the ideal examples of great outcomes under O.T mode and summarize the problems about this mode of management. Moreover, this thesis will try to solve problems which comes from the summary of different articles mentioned in chapter one and above cases in a legislative perspective. Further, this thesis will search for the comparative law. By reviewing laws and governmental system about the management of ancient monuments in England which is a section of United Kingdom and international treaties, we found out that there is a need to amend the Cultural Heritage Preservation Act. Furthermore, the education on the historic role and value of cultural heritage should be emphasized and that the Cultural Heritage Education Law must be established.