【作者】 虞青松；

【导师】 叶必丰；

【作者基本信息】 上海交通大学 ， 宪法与行政法， 2013， 博士

【摘要】 公用事业可以分为公共用物和公用服务。由于公用事业具有自然垄断的经济属性，公用事业公有制是政府对自然垄断行业的一种管制形式。在给付行政领域，政府在公用事业领域的相关活动是围绕公用事业的所有权国有化——公有制展开的，其核心是公用事业的收费权。公用事业公有制经历了两个阶段：政府垄断和公私合作。前者以公营组织为载体，后者以私营组织为载体。政府垄断下，政府通过组织公法化保障公用事业公益性。当公营组织以公法利用方式提供服务时，所收取的为税和规费，适用于公共用物；当公营组织以私法利用方式提供服务时，所收取的为价金，适用于公用服务。民营化下，私有化使私营组织取得公用事业所有权，而公私合作使公用事业公有制得以延续。当私营组织以公法利用方式提供服务时，所收取的为规费；当私营组织以私法利用方式提供服务时，所收取的为价金。也就是说，收费权有两种属性：规费征收权和价金收取权。规费征收权依授权而取得，属于公权力；价金收取权依特许而取得，属于私权力。在公私合作下，政府、私营组织、利用人三方形成两级法律关系。私营组织的收费权属于复合权，有政府完全责任、政府主责的共同责任、私营组织主责的共同责任、私营组织完全责任四种形态，可以归入四个象限。前两者属于私营组织的公权力，后两者为私营组织的私权力。在政府完全责任象限下，私营组织的公权力表现为财政资金支配权，而收费权属于国家，与利用人不发生法律关系。在政府主责的共同责任象限下，私营组织经授权取得规费征收权，并与利用人形成行政法律关系。在私营组织主责的共同责任、私营组织完全责任象限中，私营组织经特许取得私权力，均与利用人形成民事法律关系。但在私营组织主责的共同责任象限，私营组织被赋予公法属性的强制权。对于私营组织的收费权，政府应遵循“物有所值原则”保障其公益性。公私合作契约包括内部效力契约和外部效力契约。其中外部效力契约并非独立的行为，而是授权行为与特许行为的载体。政府与私营组织基于该类契约形成的并非民事关系，而是行政法律关系。公私合作契约形成的纠纷应当适用行政诉讼救济。更多还原

【Abstract】 Public utilities can be divided into two types of "public-goods" and"public-service". Because utilities have economic attributes of naturalmonopoly public, public-ownership of public utilities is a form ofregulation on the natural monopoly industries by the Government. Allproblems in public utilities Quadrant to the government services, whichsurrounding the ownership nationalization of public utilitiespublic-ownership, its legal issues was discussed by the charging power asthe core in the public utilities.Public-ownership in public utilities has experienced two stages: thedominant phase of public power and PPP stage. Former is the carrier bypublic organizations, and the latter is by private organizations. Underthe monopoly of the government, the government protected the publicwelfare of the public utilities through the organization of public law.When public organizations providing services as public law utilization,they charged as tax and charge for public goods; when publicorganizations providing services as private utilization, they charged as toll for public service. Under privatization, privatization let the privatelaw organizations obtain the ownership of utilities while PPP let publicownership of utilities survive. When private organizations providingservices as public law utilization, they charged as charge; when privateorganizations provide services as private law utilization, they charged astoll. The charging power has two properties: the charge-levied power andthe toll-received power. The charge-levied power achieves byadministrative authorization, which belongs to public power; thetoll-received power achieve by administrative franchised, which belongsto private power.Under the PPP, the government、 private law organizations,、peopletripartite form two stage of legal relationship. The charging power of theprivate organizations is a composite power. It has four forms whichbelong to four Quadrants: full responsibility by the government, theshared responsibility mainly by the government, the shared responsibilitymainly by the private organizations and full responsibility by the privateorganization. The former of two forms belong to private organizations aspublic power, and the latter of two forms belong to private organizationsas private power.In full responsibility by the government Quadrant, the privateorganizations who have no legal relationship with the user, has thepublic power of represents as the power of using-state-Treasury, and the charging power shall be vested in the country; In the shared responsibilitymainly by the government Quadrant, private organizations who formadministrative legal relationship with user, have been authorized to obtainthe fees-levied power; In the shared responsibility mainly by the privateorganizations and full responsibility by the private organizationQuadrants, the private organization obtain the private power byadministrative franchised, who form the civil legal relations with user. Inthe shared responsibility mainly by the private organizations Quadrant,private organizations are given the coercive power.In order to regulate the private organizations who gained thecharging power under PPP, the government protected its public welfareby "value of money". The PPP contract includes internal validity contractand external validity contract. The external validity contracts are notindependent behavior, but they are the carrier for administrativeauthorization behavior and administrative franchised behavior.Government and private organizations don’t form the civil legalrelationship which based on those contracts, but an administrative legalrelationship. In order to relief for private organizations, the disputation ofPPP contract should apply to the Administrative Procedure Law.更多还原