公共建設工程保險機制研究-以交通部工程為例

Abstract

政府為發展經濟、擴大內需政策，每年編列鉅額工程預算投入公共建設，然而隨著國內重大工程建設規模、金額日益龐大，工程內容漸趨複雜，營建工程的風險日漸提高，為分攤因意外造成的損失，順利達成各項公共建設，需建立完善工程保險機制。 工程保險即是目前業主與營造廠商採用之重要控險方式，然業主（工程主辦機關)及要保人（營造商)，工程保險觀念未臻健全，形成執行上存有諸多疑義，甚至發生不肖公務人員涉嫌勾結營造商、產險公司出具不實保單，詐領工程保險費用，收取佣金回扣，觸犯刑責等不法情事。 本研究參研國內工程保險相關文獻及貪瀆案例，實施交通部現況業務調查，訪查國內產、官、學界之工程保險實務專家，深入發掘弊端癥結、犯罪成因、檢討現行作業流程與相關法令有無疏漏，並藉交通部舉行「工程保險制度及企業誠信倫理研討會」，研提以花費最少公帑達到最佳控險目的之建議措施及革新方案，提供工程主辦機關辦理之參據。 公共建設工程的良窳對於人民及社會具有重大且深遠之影響，工程保險是控管工程進度、品質及風險之重要工具，研究結果現行公共工程保險潛在之缺失並非單一個案，肇因政府機關工程保險辦理之法規、制度、執行及監督等事項未盡完善，及企業未落實誠信倫理，是以提出13項建議為：(一)變更工程保險辦理模式，推行業主主控保險計畫；(二) 採廠商自行投保方式，不以採單獨列項之方式編列保費；(三)依據工程性質，調整合併列項保費編列占工程總價之比例；(四) 工程採購契約明確規範工程保險範圍及條件，並確實審核；(五) 釐定合理之自負額；(六) 研訂最高賠償限額、天災賠償限額等合理額度；(七) 修訂廠商自行投保有關保單提交業主之時點；(八) 保險合約因工程契約變更，適時作業調整；(九) 修訂規劃階段營造工程財物損失險各類工程建議參考費率；(十) 金管會加強辦理工程保險業務稽核，並完善相關法令；(十一) 私部門實施內控機制、落實公司治理、發揚企業誠信倫理；(十二) 推行損害防阻工作；(十三) 業主主控保險之推動建議方案。

The government has been allocating a substantial amount of the yearly budget on public infrastructure construction to enhance economic development and expand domestic demand. However, the risk of construction is rising since the scales and funds of the major projects are gradually increasing and the content is also getting more complicated. Therefore, it is necessary to establish an ideal construction insurance system in order to fairly share the cost caused by accidents and smoothly accomplish all the projects. Construction insurance is currently the main way that owners and contractors use to manage the risk. However, the owner (the construction sponsor agencies) and insured (contractors) have insufficient understanding of construction insurance, so it causes many problems in practice. Furthermore, some dishonorable public servants collude with contractors and insurance companies to falsify insurance policies, deceptively gain benefits and commissions, and resulting in commission of criminal offences. This research examined related literatures, cases of corruption, construction projects operated by Ministry of Transportation and Communications, and interviews with specialists from the government, academia and enterprises. This also revealed the cases of abuse and identified the flaws of current procedures and related laws. In a seminar on “Construction Insurance System and Business Honesty Ethics” held by the Ministry of Transportation and Communications, this research proposed recommendations and renovation plans, which aim to spend less money but have the best effect on risk management. The proposal could be the reference for construction sponsor agencies to manage the risk in the future cases. Public construction has significant and profound impact on people and society. Thus, the construction insurance is a very important tool to manage the progress, quality and risk of construction. The research shows the potential defects of the current construction insurance system mainly results from faulty regulations, systems, implementation, and supervision. Failure of business to adopt honesty ethics is also the other main reason. To sum up, the recommendations of this research are as follows: (a) Change the method of construction insurance and carry out the “Owner Controlled Insurance Program”; (b) Not calculate the premium by means of listing the separate insured items if the insurance is processed by the contractors; (c) Modify the proportion of insurance premium to total price of construction in accordance with the nature of the construction; (d) Stipulate clearly the insurance coverage and conditions in the construction contracts and examine carefully; (e) Determine the reasonable deductibles; (f) Set the maximum indemnity limit and natural disaster compensation limit; (g) Amend the timing for contractors to submit insurance policy to owners; (h) Insurance contracts should be revised timely according to the possible change of the construction contracts; (i) Revise the current proposed construction insurance premium rates; (j) The Financial Supervisory Commission reinforces the examination of the construction insurance and to perfects the related laws; (k) Private sectors carry out the internal control mechanism, corporate governance and business honesty ethics; (l) Introduce the loss prevention program; (m) Make the proposal to carry out the “Owner Controlled Insurance”.