從保護法益論政府採購法之刑事責任--國家法益假象下的競爭秩序守護者--

Abstract

政府採購法作為行政法律之一環，關於其罰則罪章，很容易被視作為保護國家法益的規定。然而，對於國家法益的範圍與界限，本文基本上是採取較為保守的態度，亦即反對概略地將某些與國家有關之事物認乃對全民有利，並將其作為國家利益而先驗性地保護之。有些利益縱使披有國家色彩的外衣，但若欲以刑事規定處置的話，仍須探究其實質內涵為何。本論文即將探討政府採購法刑事保護法益該如何定位之問題，若主要非保護國家利益，而係針對招標階段中之「競爭秩序」的話，該秩序作為刑事保護法益的實質內涵究屬為何，即是本文接下來要處理的第二個議題。 於簡單確認政府採購法之定義範圍、基本作業流程、以及刑事犯罪態樣後，本文將從法益理論的概念出發，探討將本法刑事罰則定位為個人法益及國家法益的可能性。在國家法益的討論當中，主要區分為兩個面向：其一乃針對「買進來的」工程、財物、或勞務等標的；其二乃環繞「花出去的」國家資源。關於前者，即係討論本法是否乃為概略地保護「行政目的」之問題；關於後者，則可分為量的層面與質的層面來為探討。結論上本文主要從國家財產本質、刑法所保護之公務等概念出發，進而否定將保護法益定位於此之可能性。 其次，關於定位為社會法益中「競爭秩序」可能性之探討，將從「競爭」的概念，以及競爭制度的發展流變出發，進而探討「競爭秩序」作為刑事保護法益之實質內涵為何。於此可區分為個人利益面向以及社會利益面向，前者乃涉及「市場主要參與者」與「一般消費者」之個人經濟利益；後者則又可分為「應然面的競爭秩序保護」及「實然面的競爭機能維護」，本文將以「產業組織經濟學」理論為基礎，論證定位為後者之可能性。 此外，在確認政府採購法之刑事罰則乃保護「市場競爭秩序機能」後，本文將執此重新檢視本法罰則中的刑事規定，無論是在條文適用範圍，或是立法論的修法建議上，提出從保護法益觀點出發的限縮解釋可能性。最後，針對政府採購實務上時常出現的「陪標」行為作一探討，實務上對此種行為雖於適用條文上有所歧異，但多認此屬犯罪行為；然而本文從定位後的保護法益觀點出發，得出應予以除罪化之解釋路徑。

Government Procurement Act is one of the administrative law, so the crime chapter in it could easily be regarded as legally protected interest of state. However, with respect to the range and limit of legally protected interest of state, this thesis basically takes a conservative attitude to it, and against a priori protecting everything about country. Although some benefit have the assimilatory coloration, but when talking about criminal disposal, we still have to make a thorough inquiry of its substantive content inside. This thesis will be talking about how to define the legally protected interest of Government Procurement Act. If it is the “Competitive Order” which is protected, then figuring out what the substantive content inside will be the next topics. After confirming the definition range, the basic processes of procurement, and its criminal patterns, this thesis will use the theory of legal good to find the possibility of locate it on legally protected interest of personal or state. In the discussion of legally protected interest of state, it can be separate to two level: one is about “buy in”, which referring to the things that the nation buys in; the other is about “pay out”, which meaning the resources that the nation pays out. Speaking to the former, it is the question about what if the Act roughly protecting the “administrative purposes”; as for the latter, could be separated to volume and qualitative level. This thesis will start from the meaning of state property and the concept of public affairs in Criminal Law, and gainsay the possibility of locating legally protected interest on it. In addition, speaking to the discussion of the possibility of locating to the “Competitive Order”, this thesis will start from the concept of the competition, and the development of competitive system, then search the substantive content inside the “Competitive Order” as the legally protected interest of Criminal Law. It could be separated to personal benefit level and social benefit level. The former is talking about the personal economic interests of “major participants in the market” and “the average consumer”; the latter is referred to “the protection of competitive order” and “the maintenance of competitive function”. This thesis will use the theory of “Economics of Industrial Organization” to identify the possibility that can locate the legal good on “competitive function”. After that, this thesis will take the conclusion to reexamine the provisions of the criminal chapter in Government Procurement Act and submitting the possibility of limited explanation from legal good. In the end, with regard to the “accompanying-bidding” situation, the courts usually consider it as a criminal behavior, but this thesis will explain why we should take it to decriminalization from the legally protected interest perspective.