독일 이단계이론의 현대적 적용 가능성

German two-stage theory(Zweistufentheorie), formed in the 1950s, was designed to distinguish between a process for determining whether or not to grant a subsidy and a private-law contract for providing a subsidy, and to place the former as an administrative act under the control of the administrative court. Various criticisms have been directed at the traditional Zweistufentheorie. These include criticisms that it is difficult to distinguish among the stages, that the legal relationship between the two is unclear, and that the Zweistufentheorie has lost its usefulness to exercise the control by public law over the administration’s actions in private-law form after the theoretical acceptance of theory of Verwaltungsprivatrecht(Administrative private law) and public-law contracts. However, the Zweistufentheorie might be still highly acclaimed given its recognition that the administrative body exercises unilateral and authoritative action at the beginning of a juristic relationship, which takes the form of a private-law contract, and has made it an object of administrative dispute. In Korea in particular, the Zweistufentheorie is of great use considering the lack of stipulations about the public-law contracts and considering that imposing legal controls, such as binding by basic rights, as in Germany, is not generally approved by precedent. In addition, from the perspective of the third person in a contending relationship, they are able to exercise a clearer and easier remedy for violation of a private right, by filing for the cancellation and suspension of a one-stage administrative act based on the traditional theory of the administrative act with double effects, rather than insisting on the nullification of the two-stage contract. In Germany, the possibility of forming a legal relationship under the Zweistufentheorie has been discussed in areas such as subsidies, use of public facilities, and entrustment orders for public works. Similarly, in Korea, we may consider imposing legal controls in these areas, viewing the authoritative decisions of administrative entities before the contracting stage as administrative acts. In addition to the aforementioned, the legal relationships according to the Zweistufentheorie could be formed at the hiring stage and the subsequent stage of concluding a contract in case of the hiring non-public officials by state or local governments, in the decision to sell state-owned property and the subsequent stage of concluding a sales contract, and in the process of selecting tenants for the Korea Land and Housing Corporation's public rental housing project and the subsequent stage of signing a lease, etc. It will be necessary to expand and strengthen the legal control of the administration’s actions in private-law form through more in-depth follow-up research studies of individual juristic relations.