대구지방법원 | 2021-09-29 | 2020구합24013
법원 판례 기준으로 판결요지와 원문 출처를 내부에서 확인하세요.
원문이 아닌 정리본이며, 저장된 요약의 끝부분이 잘려 있을 수 있습니다.
배전반 구매 입찰 담합 주도자에 대한 입찰참가자격 제한 처분 적법성 판단
결과 요약
- 근로자의 배전반 구매 입찰 담합 주도에 따른 입찰참가자격 2년 제한 처분은 재량권 일탈·남용에 해당하지 않아 적법함.
사실관계
- 근로자는 2013년 9월부터 2015년 7월까지 피고 또는 조달청이 공고한 12건의 배전반 등 구매 입찰에 참가하며 17개 업체와 담합함.
- 근로자는 이 사건 담합을 통해 9건의 입찰에서 낙찰예정자로 참여하였고, 그중 6건을 낙찰받음.
- 공정거래위원회는 근로자의 부당한 공동행위를 인정하였으나, 근로자가 조사협조자에 해당하여 시정명령 및 과징금 납부명령을 면제함.
- 회사는 2020년 7월 23일, 근로자가 담합을 주도하여 낙찰을 받았다는 이유로 2년간 입찰참가자격을 제한하는 처분을 함.
핵심 쟁점, 법리 및 법원의 판단
1. 공익신고자 보호법상 책임 감면 주장의 타당성 여부
- 법리: 공익신고자 보호법 제14조 제2항은 공익신고등과 관련하여 발견된 위법행위 등을 이유로 공익신고자등에게 불리한 행정처분을 하는 경우, 위원회는 징계권자나 행정처분권자에게 감경 또는 면제를 요구할 수 있으며, 요구를 받은 자는 정당한 사유가 없는 한 따라야 함.
- 법원의 판단: 국민권익위원회는 근로자의 책임감면 신청을 기각하였고, 회사가 국민권익위원회로부터 감경 또는 면제 요구를 받은 사실이 없으므로, 근로자의 주장은 이유 없음.
관련 판례 및 법령
- 공익신고자 보호법 제2조 제4호, 제5호
- 공익신고자 보호법 제14조 제2항
2. '담합을 주도한 자'의 의미 및 근로자의 주도 여부
- 법리: 구 국가계약법 시행규칙 제76조 제1항 [별표 2]에서 규정하는 '담합을 주도한 자'는 입찰에서 투찰가격의 범위를 제시하거나 낙찰자를 예정하는 등으로 경쟁을 제한하거나 배제하는 구체적인 내용을 주도적으로 제시하여 관련자의 참여나 동조를 이끌어내는 자를 의미함. 이는 개별 입찰별로 판단하되, 입찰담합의 전체적인 계획 마련에 참여한 경위나 역할도 고려할 수 있음.
- 법원의 판단: 근로자는 개별 입찰 참여 여부를 결정한 후 다른 업체들에게 들러리 참여를 요청하고 투찰금액을 조정하는 등 담합의 구체적인 작동을 이끌어냈으며, 하도급 제안을 통해 들러리 참여를 유도하기도 함. 따라서 근로자는 이 사건 각 입찰 중 근로자를 낙찰예정자로 정한 9건의 입찰에서 담합을 주도한 자에 해당함.
관련 판례 및 법령
- 구 국가계약법(2016. 3. 2. 법률 제14038호로 개정되기 전의 것) 제27조 제1항
확보한 수집 내용입니다. 전문 여부와 앞뒤 누락, 문단·표·공백의 원형 보존은 확인되지 않았습니다.
공식 원문 미확인
대구지방법원 제1행정부 판결
사건: 2020구합24013 입찰참가자격제한처분취소 원고: 주식회사 A 소송대리인 변호사 이영희 피고: B공사 소송대리인 법무법인 지향 담당변호사 박갑주 변론종결: 2021. 8. 18. 판결선고: 2021. 9. 29.
1. 원고의 청구를 기각한다. 2. 소송비용은 원고가 부담한다.
1. 처분의 경위 가. 원고는 배전반 설계, 제작 및 시공 등을 목적으로 설립된 회사이고, 피고는 가스를 장기적으로 안정되게 공급할 수 있는 기반을 마련함으로써 국민생활의 편익 증진과 공공복리의 향상에 기여함을 목적으로 한국가스공사법에 따라 설립된 회사로서 공공기관의 운영에 관한 법률(이하, '공공기관운영법'이라 한다)에 따른 공기업이다. 나. 원고 등 17개 업체는 2013. 9.경부터 2015. 7.경까지 피고 또는 조달청이 공고한 12건의 배전
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\ud544\uc694, \uac1c\uc778\uc774 \uc785\uac8c \ub420 \ubd88\uc774\uc775 \ub4f1\uc744 \ube44\uad50\u00b7\uad50\ub7c9\ud558\uc5ec \ud310\ub2e8\ud574\uc57c \ud568. \ucc98\ubd84\uae30\uc900\uc774 \ubd80\ub839 \ud615\uc2dd\uc73c\ub85c \uaddc\uc815\ub418\uc5b4 \uc788\ub354\ub77c\ub3c4 \uc774\ub294 \ud589\uc815\uccad \ub0b4\ubd80\uc758 \uc0ac\ubb34\ucc98\ub9ac\uc900\uce59\uc5d0 \ubd88\uacfc\ud558\uba70, \ucc98\ubd84\uc758 \uc801\ubc95 \uc5ec\ubd80\ub294 \uad00\uacc4 \ubc95\ub839\uc758 \uaddc\uc815 \ub0b4\uc6a9\uacfc \ucde8\uc9c0\uc5d0 \ub530\ub77c \ud310\ub2e8\ud574\uc57c \ud568.\n- **\ubc95\uc6d0\uc758 \ud310\ub2e8**: \uc6d0\uace0\uc5d0 \ub300\ud55c \ucc45\uc784\uac10\uba74 \ud544\uc694\uc131\uc774 \uc778\uc815\ub418\uc9c0 \uc54a\uace0, \uc6d0\uace0\uac00 \ub2f4\ud569\uc758 \uc8fc\ub3c4\uc790\ub85c \uc778\uc815\ub418\ub294 \uc810, \uc57d 2\ub144\uac04 \ubc18\ubcf5\uc801\uc73c\ub85c \uc774\ub8e8\uc5b4\uc9c4 \uc870\uc9c1\uc801\uc778 \ub2f4\ud569\uc73c\ub85c \uacbd\uc7c1\uc758 \uacf5\uc815\ud55c \uc9d1\ud589\uc774 \uce68\ud574\ub41c \uc810, \uad6c \uad6d\uac00\uacc4\uc57d\ubc95 \uc2dc\ud589\uaddc\uce59\uc0c1 '\ub2f4\ud569\uc744 \uc8fc\ub3c4\ud558\uc5ec \ub099\ucc30\uc744 \ubc1b\uc740 \uc790'\uc5d0 \ub300\ud55c \uc81c\uc7ac\uae30\uac04\uc774 2\ub144\uc73c\ub85c \uc815\ud574\uc838 \uc788\uace0 \uc774 \uae30\uc900\uc774 \ubd80\ub2f9\ud558\ub2e4\uace0 \ubcfc \uc218 \uc5c6\ub294 \uc810, \uc6d0\uace0\ub97c \ub099\ucc30 \uc608\uc815\uc790\ub85c \uc815\ud55c \uc785\ucc30\uc774 9\uac74\uc774\uace0 \ub099\ucc30\uae08\uc561\uc774 \uc57d 150\uc5b5 \uc6d0\uc5d0 \ub2ec\ud558\ub294 \uc810 \ub4f1\uc744 \uc885\ud569\ud560 \ub54c, 2\ub144\uc758 \uc81c\uc7ac\ucc98\ubd84\uc774 \uacfc\ub3c4\ud558\uac70\ub098 \uc7ac\ub7c9\uad8c \uc77c\ud0c8\u00b7\ub0a8\uc6a9\uc5d0 \ud574\ub2f9\ud55c\ub2e4\uace0 \ubcf4\uae30 \uc5b4\ub824\uc6c0.\n#### \uad00\ub828 \ud310\ub840 \ubc0f \ubc95\ub839\n- \ub300\ubc95\uc6d0 2015. 12. 10. \uc120\uace0 2014\ub4505422 \ud310\uacb0\n- \ub300\ubc95\uc6d0 2007. 9. 20. \uc120\uace0 2007\ub4506946 \ud310\uacb0\n## \ucc38\uace0\uc0ac\uc2e4\n- \ud53c\uace0\ub294 2013\ub144 \uc774\uc804\uae4c\uc9c0 \uc911\uc18c\uae30\uc5c5\uccad\uc73c\ub85c\ubd80\ud130 \uc131\ub2a5\uc778\uc99d\uc744 \ubc1b\uc740 \uc5c5\uccb4\ub4e4\uacfc \uc218\uc758\uacc4\uc57d\uc744 \uccb4\uacb0\ud558\ub294 \ubc29\uc2dd\uc73c\ub85c \ubc30\uc804\ubc18\uc744 \uad6c\ub9e4\ud558\uc600\uace0, \uac01 \uc5c5\uccb4\ub4e4\uc740 \uc120\uc601\uc5c5\uc744 \ud1b5\ud574 \uc785\ucc30 \uc815\ubcf4\ub97c \uc785\uc218\ud558\uace0 \uc785\ucc30\uc5d0 \ucc38\uc5ec\ud568.\n- \uc6d0\uace0\ub294 \uc120\uc601\uc5c5 \uacfc\uc815\uc5d0\uc11c \ud53c\uace0 \ub2f4\ub2f9\uc790\ub85c\ubd80\ud130 \uc785\ucc30 \uc815\ubcf4\ub97c \uc785\uc218\ud558\uc5ec \ub4e4\ub7ec\ub9ac \uc5c5\uccb4\ub97c \uc694\uccad\ud558\uace0 \ud22c\ucc30\uae08\uc561\uc744 \uc870\uc815\ud558\ub294 \ubc29\uc2dd\uc73c\ub85c \ub2f4\ud569\uc744 \uc2e4\ud589\ud568.\n- \uc6d0\uace0\ub294 \uc120\uc601\uc5c5 \ube44\uc6a9 \ubcf4\uc804\uc744 \uc704\ud574 \ub2f4\ud569\uc5d0 \uc774\ub974\uac8c \ub418\uc5c8\ub2e4\uace0 \uc8fc\uc7a5\ud558\ub098, \uc774\ub294 \ub2f4\ud569 \ud589\uc704\ub97c \uc815\ub2f9\ud654\ud560 \uc218 \uc5c6\uc73c\uba70, \uc774\ub7ec\ud55c \ube44\uc6a9\uc740 \uac70\ub798 \uad6c\uc870 \uac1c\uc120\uc744 \ud1b5\ud574 \ud574\uacb0\ud574\uc57c \ud560 \ubb38\uc81c\uc784.\n- \uc6d0\uace0\uc758 \uacf5\uc815\uac70\ub798\uc704\uc6d0\ud68c\uc5d0 \ub300\ud55c \uac10\uba74 \uc2e0\uccad\uc740 \ud53c\uace0\uc758 \uc2e0\uace0\uc5d0 \uc758\ud55c \uacf5\uc815\uac70\ub798\uc704\uc6d0\ud68c\uc758 \ud604\uc7a5 \uc870\uc0ac\uac00 \uc2dc\uc791\ub41c \uc774\ud6c4\uc5d0 \uc774\ub8e8\uc5b4\uc9d0.\n## \uac80\ud1a0\n- \ubcf8 \ud310\uacb0\uc740 \uacf5\uacf5\uae30\uad00 \uc785\ucc30 \ub2f4\ud569 \ud589\uc704\uc5d0 \ub300\ud55c \uc5c4\uc815\ud55c \uc81c\uc7ac\uc758 \ud544\uc694\uc131\uc744 \uac15\uc870\ud568. \ud2b9\ud788, '\ub2f4\ud569\uc744 \uc8fc\ub3c4\ud55c \uc790'\uc758 \ud574\uc11d\uc5d0 \uc788\uc5b4 \uacf5\uc815\uac70\ub798\ubc95\uc0c1 '\uc8fc\ub3c4\uc801 \uc5ed\ud560'\uacfc \uad6c\ubcc4\ud558\uc5ec \uad6d\uac00\uacc4\uc57d\ubc95\ub839\uc758 \ucde8\uc9c0\uc5d0 \ub9de\uac8c \ud3ed\ub113\uac8c \ud574\uc11d\ud568\uc73c\ub85c\uc368, \uc785\ucc30\uc758 \uacf5\uc815\uc131\uc744 \ud574\uce58\ub294 \ud589\uc704\uc5d0 \ub300\ud55c \ucc45\uc784\uc744 \uac15\ud654\ud55c \uc810\uc774 \uc8fc\ubaa9\ub428.\n- \uacf5\uc775\uc2e0\uace0\uc790 \ubcf4\ud638\ubc95\uc0c1 \ucc45\uc784 \uac10\uba74 \uc8fc\uc7a5\uc774 \ubc1b\uc544\ub4e4\uc5ec\uc9c0\uc9c0 \uc54a\uc740 \uac83\uc740, \uacf5\uc775\uc2e0\uace0\uc758 \uae30\uc5ec \uc815\ub3c4\uc640 \ub2f4\ud569\uc73c\ub85c \uc778\ud55c \uacf5\uc775 \uce68\ud574 \uc815\ub3c4\ub97c \ube44\uad50 \ud615\ub7c9\ud558\uc5ec \ud310\ub2e8\ud55c \uac83\uc73c\ub85c, \uacf5\uc775\uc2e0\uace0\uac00 \ubaa8\ub4e0 \uc704\ubc95 \ud589\uc704\uc5d0 \ub300\ud55c \uba74\ucc45 \uc0ac\uc720\uac00 \ub420 \uc218 \uc5c6\uc74c\uc744 \uba85\ud655\ud788 \ud568.\n- \uc7ac\ub7c9\uad8c \uc77c\ud0c8\u00b7\ub0a8\uc6a9 \uc5ec\ubd80 \ud310\ub2e8 \uc2dc, \ub2f4\ud569\uc758 \ubc18\ubcf5\uc131, \uc870\uc9c1\uc131, \ub099\ucc30 \uae08\uc561\uc758 \uaddc\ubaa8, \uacf5\uc775 \uce68\ud574 \uc815\ub3c4 \ub4f1\uc744 \uc885\ud569\uc801\uc73c\ub85c \uace0\ub824\ud558\uc5ec 2\ub144\uc758 \uc785\ucc30\ucc38\uac00\uc790\uaca9 \uc81c\ud55c \ucc98\ubd84\uc774 \uc801\ubc95\ud558\ub2e4\uace0 \ubcf8 \uac83\uc740, \uacf5\uacf5\uc870\ub2ec \uc2dc\uc7a5\uc758 \uacf5\uc815\uc131 \ud655\ubcf4\ub77c\ub294 \uacf5\uc775\uc801 \uac00\uce58\ub97c \uc911\uc2dc\ud55c \uac83\uc73c\ub85c \ud310\ub2e8\ub428."}
- 구 국가계약법 시행령(2013. 9. 17. 대통령령 제24728호로 개정되기 전의 것) 제76조 제1항
- 구 국가계약법 시행규칙(2016. 9. 23. 기획재정부령 제573호로 개정되기 전의 것) 제76조 제1항 [별표 2] 제9호
- 대법원 2010. 3. 11. 선고 2008두15169 판결
3. 재량권 일탈·남용 여부
- 법리: 제재적 행정처분이 재량권의 범위를 일탈하였거나 남용하였는지 여부는 위반행위의 내용과 정도, 공익상 필요, 개인이 입게 될 불이익 등을 비교·교량하여 판단해야 함. 처분기준이 부령 형식으로 규정되어 있더라도 이는 행정청 내부의 사무처리준칙에 불과하며, 처분의 적법 여부는 관계 법령의 규정 내용과 취지에 따라 판단해야 함.
- 법원의 판단: 근로자에 대한 책임감면 필요성이 인정되지 않고, 근로자가 담합의 주도자로 인정되는 점, 약 2년간 반복적으로 이루어진 조직적인 담합으로 경쟁의 공정한 집행이 침해된 점, 구 국가계약법 시행규칙상 '담합을 주도하여 낙찰을 받은 자'에 대한 제재기간이 2년으로 정해져 있고 이 기준이 부당하다고 볼 수 없는 점, 근로자를 낙찰 예정자로 정한 입찰이 9건이고 낙찰금액이 약 150억 원에 달하는 점 등을 종합할 때, 2년의 제재처분이 과도하거나 재량권 일탈·남용에 해당한다고 보기 어려움.
관련 판례 및 법령
- 대법원 2015. 12. 10. 선고 2014두5422 판결
- 대법원 2007. 9.