從公平競爭觀點探討政府採購中機關搭購之行為－－美國聯邦政府採購機制之借鏡

Contract Bundling in the United States of America in the Context of Fair Competition for the Reference to the R.O.C.

採購機關為求提升行政之效率及節省成本，常將數種較小之採購契約搭購或包裹於較大之採購契約中，搭購行為可能使政府獲得實質利益，但政府必須獲得「可測量性之大量利益」時，該搭購行為方屬必需及正當，採購機關是否因此限制小廠商參與完全及公開競爭之機會？機關是否造成小廠商之不公平競爭？又何謂可測量性之大量利益？
有鑒於現無法令規範政府可獲得之可測量性大量利益及其測量方法，因此有檢視美國及我國法令及實務之必要，藉以研究我國法令是否有應修正之處。本文主要依據美國聯邦法典、聯邦獲得規則及審計長之相關判斷予以論述，以尋求解決方法。本文首先檢視美國及中華民國於辦理政府採購時，對於廠商間完全及公開競爭之要求，再分析實務中測量大量利益之妥適作法，本文亦檢視美國及我國有關政府採購之法令及實務以彌補我國法規疏漏之處，最後謹提供建議，以供修法時一併予以考量及加列。

To achieve efficiencies and save costs, some government agencies have consolidated their procurement contracts-that is, bundled or combined existing smaller contracts into fewer larger contracts. Bundling may provide substantial benefits to the government. However, bundling is necessary and justified if government would derive measurably substantial benefits. Do agencies, therefore, improperly restrain smaller business from full and open competition? Do agencies without proper reasons discriminate against smaller businesses? What are measurably substantial benefits?
There is no law or regulation governing the metric and measures to evaluate the substantial benefits to the government. It becomes necessary to examine the laws and practice of the R.O.C. and the U.S. to see whether amendment to the law or regulation of the R.O.C. is required. This research on contract bundling focuses on the clauses in United States Code and the Federal Acquisition Regulations (FAR). Some decisions made by the Comptroller General dealing with issues in this area are discussed. This research first provides the requirement of full and open competition to see the laws and practice of these two countries. It then presents appropriate evaluation of substantial benefits from viewpoint of best practices. It also examines domestic laws, regulations, and practices of the US and the ROC regarding government procurement to see the shortcomings of Taiwan's domestic laws and regulations. This study then offers suggestions for establishing these laws and regulations.