論政府政策公告的法律效力──以公股股權管理為中心

A Study on the Legal Effect of Government Policy Announcement —Focused on the Management of Public Shares

政府政策(policy)，乃是政府為實現目標而訂立的計畫。公告的法律效力視其於行政法上所從屬的行為形式而有所不同。為二次金改、金融機構整併政策所為的政策公告，其實是從屬於以公股股權管理及處分要點為基礎所為的公股股權管理行為。其於計畫類型上並非命令式、法案型計畫；於法律性質上並非法律、法規命令、自治規章或行政處分。其屬性比較接近誘導式計畫，甚至說明式計畫。從屬於此所為公告，毋寧只有對內（組織法上）的效力，並無對外效力，非行政法上承諾。而且，在公私法二元化體系下，應該只論該公告於公法介面上的效力即可，不該在民法介面上重複評價之。即使勉強認為其有民法上的意義，亦非懸賞廣告的要約，無從因懸賞廣告而成立契約。

Government policy is the government’s plan to achieve a certain goal. The legal effect of a notice differs from the form of conduct to which administrative law pertains. The policy announcements for the second-tier financial reform and financial institution consolidation policies are in fact subordinate to the management of public shares based on the “management and disposition rules of public shares”. It is not an imperative, bill-type plan; it is not a legal, statutory order, self-government regulation, or administrative injunction in terms of legal nature. Its properties are much closer to the inductive plan and even the explanatory plan. Summing up to this announcement, it has only internal (organizational law) effectiveness and has no external effect, and it is not an administrative law commitment. Moreover, in the dual system of public-private law, it should be only evaluated in the public law, and it should not be repeatedly evaluated in the civil law. Even if considered having civil law significance, it is not an offer for a reward advertisement. It is impossible to establish a contract by rewarding advertisements.