析論德國飛航安全及航空保安之民營化歷程──管制革新與公權力委託結合之典範立法例

An Analysis on the Process of Privatization of Flight Safety and Aviation Security in Germany: A Paradigm Legislation of Regulatory Innovation and Delegation („Beleihung“)

臺灣乃蕞爾島國，航空交通在對外聯繫上之重要地位自不待言，且更是經濟永續發展之命脈。惟不容諱言地，航空交通及機場乃深具敏感性之基礎設施，所涉層面經緯萬端。欲成為舉足輕重之空運樞紐，安全及效率厥為兩項關鍵要素。值茲國際恐怖主義猖獗之際，國家應擔負之航空交通安全任務已從技術作業之「飛航安全」擴及至人為因素之「航空保安」，兩者皆屬特殊警察任務，並構成航空交通法之兩大核心領域。「飛航安全」係指技術作業層面之內在危險防禦，以達成安全、有序及順暢之飛航運行；「航空保安」則旨在防禦對航空交通安全攻擊之外部危險，尤針對劫持航空器、毀壞行為及恐怖攻擊。鑑於航空運輸國際化及市場自由化，面對航空運輸量暴增及全球競爭，不僅航空站經營多被視為私經濟活動，即令飛航安全及航空保安之特殊警察任務，亦逐步開放私人參與執行之空間。本文剖析德國航空交通法涉乎公權力委託立法例之發展歷程，論述分為兩個主軸：先是德國飛航安全法秩序之逐階革新，並兼及倡議安全、效率及永續理念之【歐洲單一空域】新法制座標；繼為德國《航空保安法》專法之制頒及其要徵。證諸管制革新、法律框架及執行成效三個層面，德國飛航安全及航空保安之民營化模式堪稱成功典範，對於臺灣力圖邁向亞太空運中心之目標，允可收啟蒙之效。

Being an island country, aviation is not only an important means of transport, but also a key for sustainable economic growth. On the other hand, air transport facilities and airports are security-sensitive infrastructure, the running of which involves many aspects of policy. For Taiwan to become an international aviation hub, safety and efficiency are two key elements. Facing increasing concerns of international terrorism, state’s task in air transport safety is elevated from “flight safety” in the technical sense, to “aviation security” which involves many aspects of human activities. Both of these areas belong to police functions, and both are at the center of the air transport law. “Flight safety” primarily focuses on prevention of dangers to safety internal to the operational and technical aspects of aviation, aiming at the maintenance of safe, orderly and smooth flights. On the other hand, “aviation security” concentrates on prevention of dangers external to the air transport, in particular those involving hijacking, damaging the aircrafts, and terrorist attacks. In an era of internationalization of air transport and market liberalization, where air traffic is ever increasing and the operators are facing global competition, not only the running of the airports is increasingly seen as a private enterprise, the maintenance of flight safety and aviation security, although being a public policing function, is gradually open to participation from private sectors. By analyzing the evolution of German aviation law that involves the delegation of public functions („Beleihung“), this paper addresses the following two central aspects: first, the gradual reform of flight safety legal order in Germany, taking into account the changes brought by “Single European Sky” (SES); second, the enactment of and the main elements in German Aviation Security Act („Luftsicherheitsgesetz“). In terms of regulatory innovation, legal framework and effective execution, the privatization model of flight safety and aviation security in the German system can be considered a success, which offers a reference for Taiwan in its effort to become a hub for aviation in Asia-Pacific.