公共設施使用者之權利救濟 －以合作行政下設置管理之公共設施為中心

Abstract

行政法上之公共設施，係由國家、地方自治團體或其他行政主體所設置管理，例如公立圖書館，而由公共設施管理機關與使用者間發生公法上之公共設施使用關係。基此，行政法上公共設施使用者之權利救濟，在第一次權利保護上，公共設施使用者依保護規範理論享有主觀公權利者，依現行學界通說得循序提起訴願、行政訴訟，除去違法侵害其使用權利之公共設施管理措施；在第二次權利保護上，公共設施設置管理上有欠缺致使用者權利受侵害時，得依國家賠償法第3條第1項規定，向公共設施之管理機關請求國家賠償。由此可見，行政法上公共設施使用者於其權利受侵害時，在現行法下已有相應之權利救濟途徑。 合作行政下之公共設施，以促進民間參與公共建設法為例，則係由主辦機關依投資契約授權民間機構設置管理，而由民間機構自行與使用者間成立私法上之契約關係。基此，合作行政下公共設施使用者之權利救濟，在第一次權利保護上，公共設施使用者除了直接向民間機構提起民事訴訟主張私法契約上權利外，得否間接向主辦機關提起行政爭訟訴請行使促參法規定或投資契約約定之監督管理權，督促民間機構修正或變更公共設施管理措施，則有疑義；在第二次權利保護上，促參法下公共設施因民間機構設置管理有欠缺致使用者權利受侵害時，主辦機關是否仍應就促參法下由民間機構所設置管理之公共設施負國家賠償法第3條之國家賠償責任，涉及2019年12月18日最新修正國家賠償法第3條第2項規定之解釋適用，亦有爭議。是以，合作行政下公共設施使用者於其權利受侵害時，在現行法下之權利救濟途徑仍存有制度問題，並提出未來修法建議。

Public facilities under administrative law are built and operated by the state or local government, such as public libraries. The rights and obligations for the use of public facilities under administrative law happen between administrative agency and the users. Thus, from the perspective of litigations for users of public facilities under administrative law, the users can both file a lawsuit against administrative agency and request state compensation from administrative agency in accordance with Article 3, Paragraph 1 of State Compensation Act. In conclusion, litigations for users of public facilities under administrative law are now in smooth operation. On the other hand, public facilities under Public-Private-Partnerships are built and operated by private companies. The rights and obligations for the use of public facilities under Public-Private-Partnerships happen between private companies and the users. Thus, from the perspective of litigations for users of public facilities under Public-Private-Partnerships, the users can only file a lawsuit against private companies or request compensation from private companies. The users are not allowed to file a lawsuit against administrative agency at the same time, while they can still request state compensation from administrative agency in accordance with Article 3, Paragraph 2 of State Compensation Act. In conclusion, litigations for users of public facilities under Public-Private-Partnerships have some systemic issues in current legal system and need future amendments.