4. 國內規章與必要性測試談判歷史
4.2 國內規章準則談判歷程
4.2.2 國內規章工作小組時期
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是要致力於發展適用於所有部門的水平國內規章準則。
4.2.2 國內規章工作小組時期
基於專業服務工作小組的談判經驗與成果，會員嘗試發展適用於各部門的國 內規章準則，不料談判進行了十餘年仍未就國內規章準則形成共識。由國內規章 的談判歷程切入，復進一步對談判議題進行介紹，使讀者對於國內規章談判有完 整的認識，此即必要性測試爭議的背景。
4.2.2.1
談判歷程1999 年，依據服務貿易理事會所作成之有關國內規章的決議（Decision on Domestic Regulation）成立國內規章工作小組，承接專業服務工作小組之職責，
並進一步發展水平適用於各服務部門之國內規章準則44。
自 1999 年起，國內規章工作小組中的談判如火如荼，雖說有會計部門國內 規章準則作為前例，然而發展水平國內規章準則仍複雜許多，會員透過檢視國內 規章範例文件（example paper）、諮詢各專業部門的國際組織、彙整各國專業部 門國際組織、抽象的概念討論等等，直至 2007 年 4 月國內規章工作小組的主席 才整合了第一份可能的國內規章準則草案，並據此繼續討論與修正45。然而，2009 年主席所整合之草案修正版卻飽受各國批評，認為該草案未確實反映談判之內容
46。在逐條檢視、修正該版草案後，終於在 2011 年由主席提出進度報告，以及尚 未取得共識之草案。可惜的是，在 2011 年後，會員就如何整合草案中歧異之意 見莫衷一是，至今都難以取得突破。
44 WTO, Council for Trade in Services, supra note 9.
45 WTO, Working Party on Domestic Regulation, Annual Report of the Working Party on Domestic Regulation to the Council for Trade in Services (2007), ¶ 2, S/WPDR/10 (Nov. 13, 2007).
46 WTO, Working Party on Domestic Regulation—Report on the Meeting Hold on 1 April 2009, S/WPDR/M/40 (May 12, 2009).
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提出草案之後，秘書處發表了「國內規章談判背景文件（Background document on the domestic regulation negotiations）」47，對於談判的成果進行介紹與整理。由於 2011 年後國內規章準則的談判進展極其有限，因此，得援引 2011 年的國內規章47 WTO Trade in Services Division, Disciplines on Domestic Regulation Pursuant to GATS Article (Background document), Service, WORLD TRADE ORGANIZATION, June 2011, available at
https://www.wto.org/english/tratop_e/serv_e/dom_reg_negs_bckgddoc_e.doc (last visited Dec. 22, 2016).
48 Disciplines on Domestic Regulation Pursuant to GATS Article VI:4 (2011 Draft), Art.10: “These disciplines apply to measures by Members relating to licensing requirements and procedures, qualification requirements and procedures, and technical standards affecting trade in services where specific commitments are undertaken. They do not apply to measures to the extent that they constitute limitations subject to scheduling under Article XVI or XVII.”
49 WTO, Working Party on Domestic Regulation—Report on the Meeting Hold on 12 March 2002, ¶ 16, S/WPDR/M/15 (Apr. 10, 2002).
50 WTO, Working Party on Domestic Regulation—Report on the Meeting Hold on 22 June 2005, ¶ 20, S/WPDR/M/30 (Sept. 6, 2006).
51 Disciplines on Domestic Regulation Pursuant to GATS Article VI:4 (2011 Draft), Art.14: “Each Member shall maintain or establish appropriate mechanisms for responding to enquiries from any service suppliers regarding any measures relating to licensing requirements and procedures,
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qualification requirements and procedures, and technical standards. Such enquiries may be addressed through the enquiry and contact points established under Articles III and IV of the GATS or any other mechanisms as appropriate.”
52 Disciplines on Domestic Regulation Pursuant to GATS Article VI:4 (2011 Draft), Art.13: “Each Member shall publish promptly, through printed or electronic means, all measures of
general application relating to licensing requirements and procedures, qualification requirements and procedures, and technical standards. This shall include the following information, where it exists, inter alia: …(h) where applicable, opportunity and associated procedures for public involvement such as through hearings and opportunity for comment; (i) established timeframe for processing of an application.”
53 Disciplines on Domestic Regulation Pursuant to GATS Article VI:4 (2011 Draft), Art.18: “Each Member shall ensure that the procedures used by, and the decisions of, the competent authority in the licensing process are impartial with respect to all applicants. The competent authority should be operationally independent of and not accountable to any supplier of the services for which the licence is required.”
54 Aik Hoe Lim & Bart de Meester, supra note 39, at 14.
55 WTO, Working Party on Domestic Regulation—Report on the Meeting Hold on 1 July 2003, ¶ 93, S/WPDR/M/22 (Sept. 22, 2003).
56 Id., at ¶ 99.
57 Disciplines on Domestic Regulation Pursuant to GATS Article VI:4 (2011 Draft), Art.11: “Measures relating to licensing requirements and procedures, qualification requirements and procedures, and technical standards shall be pre-established, based on objective and transparent criteria and relevant to the supply of the services to which they apply.”
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國際標準：採用國際標準能夠促進外國資格的採納，參與國際標準 制定的政府應確保過程透明58。由於與服務有關的國際標準較少，開發中 國家參與國際標準的制定過程也會面臨困難，因此特殊差別待遇、技術援 助更形重要59。
必要性測試：談判的重點由管制目的、有效性、成本效益評估的三個要素 來建構必要性測試。會員在管制目的設計上有相當的爭執，無法就管制目 的之規範方式形成共識。而於成本效益評估當中，由於會員之間的管制能 力（regulatory capacity）不同，會員表示欠缺成本效益評估所需的人力、
金錢資源。
此六議題當中，又以必要性測試會員的立場最為分岐。於 2011 年的草案之 中，其他議題尚能就爭議程度歸納為已達成共識的參考性草案（agreement reached on an ad referendum basis）、存在單一選擇草案（single alternative）、存在多重選 擇草案（multiple alternatives）幾個類別，然而，就必要性測試的議題上會員立場 歧異之甚，甚至無法落入前述爭議分類的類別，被認為是最為困難的議題60。