초록 ▼

FINDINGS

주요 내용 및 정책제안

본 연구보고서의 주요 내용
[1] 정부는 2014년 『경제혁신 3개년 계획』, 2015년 『국토교통부 2015년 주요 정책과제 추진계획』에서 ‘건설산업 불공정행위 방지’를 주요과제로 설정하고 TF를 구성 운영 중임
[2] 건설 현장에서 발생하는 불공정행위의 근원은 발주기관의 부당 특약이나 내부지침 등 공공공사 입찰․계약 단계에서 발주기관의 우월적 지위 남용에 따른 불공정계약에 기인하는 바가 큼
[3] 따라서 본 연구는 입찰․계약 단계에서 발생하는 발

FINDINGS

주요 내용 및 정책제안

본 연구보고서의 주요 내용
[1] 정부는 2014년 『경제혁신 3개년 계획』, 2015년 『국토교통부 2015년 주요 정책과제 추진계획』에서 ‘건설산업 불공정행위 방지’를 주요과제로 설정하고 TF를 구성 운영 중임
[2] 건설 현장에서 발생하는 불공정행위의 근원은 발주기관의 부당 특약이나 내부지침 등 공공공사 입찰․계약 단계에서 발주기관의 우월적 지위 남용에 따른 불공정계약에 기인하는 바가 큼
[3] 따라서 본 연구는 입찰․계약 단계에서 발생하는 발주기관의 불공정행위를 근절하기 위한 방안으로 『입찰방법별 표준계약조건 정립』을 통해 건설 산업의 ‘비정상화의 정상화’를 도모하고자 함
[4] 표준계약기준은 현행 국가계약법 『공사도급표준계약서』에 의해 체결되는 단일계약 체계를 ‘입찰방법에 의해 달라지는 건설업체의 설계․시공 책임 정도’에 따라 구분하여 제시하였음
- 기획재정부 계약예규의 공사계약일반조건을 설계시공분리입찰(Design-Bid-Build)과 설계시공일괄입찰(Design-Build)로 구분 표준계약조건 정립
- 입찰방법별 표준계약조건, 시설공사집행기준을 명확하게 설정하여 발주기관들이 현장설명서, 입찰유의서, 설계서에 부당 특수조건 설정 금지제도 마련

본 연구보고서의 정책제안
❶ 일률적으로 체결되어 온 공사도급표준계약서를 공공공사 입찰방법별로 마련된 표준계약조건에 따라 계약하도록 함으로써 발주기관의 부당한 간섭을 근원적으로 배제
❷ 국토교통부 “공공건설사업 불공정행위 실태조사 및 개선방안”의 일환으로 수행한 연구로 발주기관의 부당 특수조건 설정 근절
❸ 발주기관 불공정관행의 근절 방안으로 발주기관의 불법 또는 신규 특수조건의 상부기관 승인, 부당 행위 신고를 위한 부당계약신고센터 설립 등 제도 개선

Abstract ▼

Ⅰ. Outline
Recently, a need for improvement of the unfair practice of the ordering agency of the public construction business has been highlighted; however, the ordering agency is still setting unfair special terms within agreements and the bidding process. The relevant legislations and rules als

Ⅰ. Outline
Recently, a need for improvement of the unfair practice of the ordering agency of the public construction business has been highlighted; however, the ordering agency is still setting unfair special terms within agreements and the bidding process. The relevant legislations and rules also prohibit the unfair practice between the ordering organization and the successful bidder, emphasizing the fact of the particular relationship between the parties.

This research proposes a fair and rational ‘Bidding method and standard agreement terms of public construction’, considering the bidding of the ordering agency as well as the terms of agreement in the agreement process. The bidding and agreement process of the bidding procedure of the public construction has been analyzed, and the agreement taking, into consideration of each of the characteristics, should be used in bidding and when entering into the contract.

II. Current status

1. Bidding method
∎ Turn-key bidding
Turn-key bidding is a method that is used for constructions that are over KRW 30 billion where the construction company organizes pecifications and other floor plan manuals, and submits it along with the bid to the company.
∎ Alternative tender
An alternative tender is where an alternative design is submitted regarding the original plan for construction.
∎ Technical proposal tender
A technical proposal tender is where, pursuant to the ordering agency’s plan, the bidders submits a technical proposal to illustrate how the construction costs can be reduced.
∎ Lowest price system
The lowest price system is where, for constructions that are more than KRW 30 billion, after the ordering organization has completed the plan and the PQ (Pre-Qualification) has been complete, the institution that has proposed the lowest cost is selected.
∎ Comprehensive screening bidding method
Comprehensive screening bidding method was enacted in 2014, and the scores of the construction technology and skills are combined with the social scores, and the bidder with the highest score is selected.
∎ Entitlement evaluation bidding method
This is for constructions that are less than KRW 30 billion where the bidder is selected according to the lowest price submissions in that order.

2. Method of entering into the agreement
From the stage of placing an order to the completion of bidding process, the ordering institution and the construction company are legally bound to enter into the National Contract Enactment Regulation No.7 “Construction standardcontract” law in entering into agreements. The Construction standard contract is an agreement that applies to all public construction, and requires the submission of the construction bidding caution material, construction agreement standard terms, construction agreement special terms, a plan, and so on.

3. Construction investment and Current law/system
In 2009, Korea recorded KRW 208 trillion of construction investment, but this was largely due to big national projects at the time such as 4 rivers renovation and afterwards in 2012 and 2014, the investments were KRW 186.1 and 198.4 trillion respectively. The construction investment for public projects were KRW 59.1 trillion in 2009 (28.4% full contrast), KRW 41.7 trillion in 2012, and KRW 38.9 trillion in 2014.

The current law and system regarding the public construction ordering institution enforces the purpose of carrying out duties under the agreement with the nation as a party to the contract. The Ministry of Strategy and Finance AgreementRegulations’ has been enacted in order to regulate the matters within the enforcement ordinance and enforcement regulations. The Public Procurement Service has enacted the Public Procurement Service Execution Standards for more accurate and specific standards.

III. Unfair cases of bidding/agreement & survey

1. Unfair case research
∎ Unfair management of applicable unit price of plan change
The ordering institutions, as custom, apply to the same special terms of the Construction Agreement Special terms II to the construction amount.
∎ Drafting unfair bidding guidebook
The costs related to a civil complaint, permit/license, and other additional costs are inserted into the bidding guidebook and the parties involved in the contract are liable for these costs.
∎ Application of special terms for indirect cost claims
Ordering institutions elongate the rest period as long as possible during the construction period and make the companies liable for construction management costs and other indirect costs.
∎ Unfair additional cost standard management
The construction company, pursuant to the special character of tunnel construction, work on the task of excavation for 24 hours, but does not acknowledge management costs as it is not explained in the unit explanation documents.
∎ Unfair loan of new skills/technology
The construction company, pursuant to the ordering institution’s request, makes changes reflecting new skills/technology, which is considered an unfair act.
∎ Unfair application of expected cost calculation
The expected cost is ordinarily (according to Public Procurement Service/local government) within ±2∼3% of the planning cost, but lower as 0∼–6%.

2. Survey
∎ Fairness of the contract and improvement of direction
In entering into a contract for a public construction site, a question was asked on whether the terms of the agreement were appropriate, 85% answered that it was inappropriate, 7.5% answered that it was very inappropriate, and approximately more than 90% had significant complaints. In response to changing the method of the agreement, 63.2% answered differentiating the design-build and designing and building, and 63.2% answered forming a contract regarding the bidding method.
∎ Unfair document and contents
The next question was “what document carries the most unfair conditions and regulations?” in which 29.8% answered RFP, 21% answered construction agreement special terms, 12% answered the site manual, and 9.5% answered the bidding public notice. One other question that was asked was “what are some of the unfair regulations in the documents?” in which 25.3% answered a cutback in unit price, 19.6% answered non-payment of indirect payment of project time extension, and 13.4% answered reduction of costs.

Ⅳ. Establishment of general contract terms and direction of improvement of the system

1. Direction of standard contract establishment
For design-build, the construction management is largely taken care of, but for design-bid-build, the responsibility of the ordering agency is large. Accordingly, the standard term contract of the public construction should differentiate between the Comprehensive screening bidding method and the Entitlement evaluation bidding method, followed by specific standards. Firstly, the construction special items should be permitted given the characteristics of each site, but Article 3 (contract document) of the construction agreement general terms should be improved and limit the benefits of the parties involved, and special terms should also be prohibited.

Furthermore, approval of the Minister of the Ministry of Strategy and Finance should be obtained in advance regarding the construction agreement special terms to thereby increase efficiency, and a revision should be made that any breach of Article 4 of National Contract Law Enactment, Article 3(4) of Construction agreement standard terms as well as Article 22 of the Framework Act on the Construction Industry, which will render the relevant conditions invalid.

2. Direction on improvement of the law/system
Article (3)(contract document) of the Construction agreement standard terms, which regulates the general terms of public constructions to further include ‘newly determined construction special terms of the ordering agency shall be prohibited from limiting the benefits of the construction company’. The contract amount reduction ratio, application period of the contract amount adjustment, etc. should be specifically written in Article 21 (limitations on contract amount pursuant to the plan change), in order to prevent disadvantages. In order to limit unfair practice, an ‘unfair conduct report center’ or an ‘evaluation of management of public authorities’ system should be implemented, as well as the ordering agency’s ‘standard approval procedure system’.

목차 Contents

• 표지 ... 1주요 내용 및 정책제안 ... 4목차 ... 6제 1 장 연구의 개요 ... 8 1. 연구의 필요성 ... 10 2. 연구의 목적 ... 12 3. 연구 범위 ... 12 4. 연구 방법 ... 13 5. 선행연구 현황 및 본 연구와의 차별성 ... 14 6. 주요 연구내용 ... 17제 2 장 입찰·계약 방법 및 실태 분석 ... 18 1. 입찰·계약 방법 ... 20 1) 공공공사 입찰 방법 ... 20 2) 공공공사 계약 방법 ... 23 3) 공공공사 투자 실적 ... 25 2. 법·제도 현황 ... 27 3. 외국 제도 현황 ... 30 1) 미국 입찰 제도 ... 30 2) 일본 입찰 제도 ... 31 3) 영국 입찰 제도 ... 33 4) 시사점 ... 34제 3 장 공공공사 입찰·계약 불공정 사례 및 설문 조사 ... 36 1. 공공공사 입찰·계약 불공정 사례 ... 38 1) 사례 조사 개요 ... 38 2) 사례 조사 내용 ... 40 3) 사례 조사 결과 ... 45 2. 공공공사 입찰·계약 설문 조사 ... 46 1) 설문 조사 개요 ... 46 2) 설문 조사 내용 ... 47 3) 설문 조사 결과 ... 50제 4 장 공공공사발주 표준계약조건 정립 방안 ... 52 1. 표준계약조건 정립 기본방향 ... 54 2. 공공공사 입찰방법별 표준계약조건 정립 방안 ... 56 3. 법·제도 개선 방안 ... 61제 5 장 결론 및 정책건의 ... 64 1. 결론 ... 66 2. 정책 건의 및 활용효과 ... 68 3. 연구의 한계 및 추후 과제 ... 69참고문헌 ... 72SUMMARY ... 76부록 1 ... 82부록 2 ... 86끝페이지 ... 96