中国能源革命的法律表达:以《电力法》修改为视角
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摘要
能源开发、生态保护与经济发展的内在张力,使新一轮能源革命蓄势待发。《电力法》作为电力建设、生产、输送和使用的基础性法律,其系统性修改有望成为撬动此次能源革命的"阿基米德支点"。从制度变迁的角度看,电力市场可以分为垄断、购买代理、批发竞争和零售竞争四种运行模式。我国现行《电力法》确立的电力市场属于第二阶段的购买代理模式,而新一轮电力体制改革使我国的电力市场实践挣脱法律的束缚,迈入到第三阶段的批发竞争模式。唯有对《电力法》进行修改才能契合"重大改革于法有据"的法治要求。能源革命背景下的《电力法》应当以电力效率与环境保护作为其修改的核心功能取向,前者对应电力监管中的经济性监管,旨在借助竞争性市场的培育来保障中国能源"量"上的安全;后者对应电力监管中的社会性监管,旨在通过环保型电力的打造来保障中国能源"质"上的安全。《电力法》可以从体例结构调整、立法目的重塑和具体制度建构三个方面,将此次电力革命的核心功能取向予以整合、嵌套和消纳。具体而言,培育竞争性市场需要拆分电力产业的非自然垄断业务,并开展电价市场化改革和落实能源普遍服务义务;打造环保型电力需要完善电力发展规划环评制度,同时辅之以清洁能源优先并网和使用制度,并建立清洁能源补贴的适时退出机制;终端用户的参与是此次能源革命的重要内容,应当建立公众参与电力产业自由化与清洁能源开发使用的体制机制;最后,对于《电力法》中与功能取向无关且与其他部门法交叉或冲突的条款,应当予以删除。
The internal tension of energy development,ecological protection and economic development has prepared a new round of energy revolution. As a basic law for the construction,production,transmission and use,the systematic modification of the Electricity Law is expected to be the ‘Archimedean Fulcrum' for this energy revolution. From the perspective of institutional change,the electricity market can be divided into four operating modes: monopoly, purchase agency, wholesale competition, and retail competition. The electricity market established by the current. Electricity Law belongs to the purchasing agency mode of the second stage,while the new round of electricity system reform has freed our country's electricity market practice from the restriction of law and entered the wholesale competition mode of the third stage. Only by amending the‘Electricity Law'can it meet the legal requirements of ‘Reforming of Law '. Under the background of the energy revolution,the Electricity Law should take power efficiency and environmental protection as its core function orientation. The efficiency orientation corresponds to the economic regulation in electricity regulatory and aims to protect China's energy security from‘quantity'by fostering competitive markets; the environmental protection orientation corresponds to the social supervision in electricity regulatory and aims to protect China's energy security from ‘quality'through the creation of environmentally friendly electricity. The Electricity Law can integrate,embed and eliminate the core functional orientation of the electric power revolution from three aspects: institutional structure adjustment,legislative purpose reconstruction and specific system construction. Specifically,to cultivate a competitive market,it is necessary to split the non-natural monopoly business of the power industry and carry out market-oriented reform of electricity prices and implement obligations of universal energy services.To build an environment-friendly electric power,it is necessary to improve the environmental assessment system of power development planning,supplemented by the system of priority Internet access and use of clean energy,and establish a timely withdrawal mechanism of clean energy subsidies. The participation of terminal users is an important part of this energy revolution,institutional mechanisms for public participation in the liberalization of the power industry and the development and use of clean energy should be established.Finally,provisions in the Electricity Law that are not related to functional orientation and that intersect or conflict with other departmental laws should be deleted.
The internal tension of energy development,ecological protection and economic development has prepared a new round of energy revolution. As a basic law for the construction,production,transmission and use,the systematic modification of the Electricity Law is expected to be the ‘Archimedean Fulcrum' for this energy revolution. From the perspective of institutional change,the electricity market can be divided into four operating modes: monopoly, purchase agency, wholesale competition, and retail competition. The electricity market established by the current. Electricity Law belongs to the purchasing agency mode of the second stage,while the new round of electricity system reform has freed our country's electricity market practice from the restriction of law and entered the wholesale competition mode of the third stage. Only by amending the‘Electricity Law'can it meet the legal requirements of ‘Reforming of Law '. Under the background of the energy revolution,the Electricity Law should take power efficiency and environmental protection as its core function orientation. The efficiency orientation corresponds to the economic regulation in electricity regulatory and aims to protect China's energy security from‘quantity'by fostering competitive markets; the environmental protection orientation corresponds to the social supervision in electricity regulatory and aims to protect China's energy security from ‘quality'through the creation of environmentally friendly electricity. The Electricity Law can integrate,embed and eliminate the core functional orientation of the electric power revolution from three aspects: institutional structure adjustment,legislative purpose reconstruction and specific system construction. Specifically,to cultivate a competitive market,it is necessary to split the non-natural monopoly business of the power industry and carry out market-oriented reform of electricity prices and implement obligations of universal energy services.To build an environment-friendly electric power,it is necessary to improve the environmental assessment system of power development planning,supplemented by the system of priority Internet access and use of clean energy,and establish a timely withdrawal mechanism of clean energy subsidies. The participation of terminal users is an important part of this energy revolution,institutional mechanisms for public participation in the liberalization of the power industry and the development and use of clean energy should be established.Finally,provisions in the Electricity Law that are not related to functional orientation and that intersect or conflict with other departmental laws should be deleted.
引文
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[10]沃尔特·帕特森.电力革命[M].曹乐人,译.北京:科学普及出版社,2007:3.
[11]吕忠梅.体制改革后的电力立法模式选择[J].理论月刊,2003(11):101-104.
[12]卢现祥.转变制度供给方式,降低制度性交易成本[J].学术界,2017(10):36-49.
[13]马丽梅,史丹,裴庆冰.中国能源低碳转型(2015-2050):可再生能源发展与可行路径[J].中国人口·资源与环境,2018(2):8-18.
[14]丹尼尔,戈兰.电力系统经济学原理[M].朱治中,译.北京:中国电力出版社,2007:4-7.
[15]史际春,肖竹.反公用事业垄断若干问题研究---以电信业和电力业的改革为例[J].法商研究,2005(3):57-65.
[16]潘天蔚.中国大陆、美国与英国电价管制比较研究[J].月旦财经法学杂志,2008(14):151-172.
[17]马俊驹,龚向前.论能源法的变革[J].中国法学,2007(3):147-155.
[18]CHEN S X,HUANG J B.Forecasting China’s primary energy demand based on an improved AI Model[J].Chinese Journal of population,resources and environment,2018,16(1):36-48.
[19]WANG Q,WU ST.Carbon trading thickness and market efficiency in a socialist market economy[J].Chinese journal of population resources and environment,2018,16(2):109-119.
[20]张忠民.我国能源诉讼专门化问题之探究[J].环球法律评论,2014(6):27-44.
[21]陈雪.“反窃电”低效问题的理论检视与制度完善---以《电力法》修订为背景[J].河北学刊,2014(6):162-165.
[2]肖国兴.再论能源革命与法律革命的维度[J].中州学刊,2016(1):49-56.
[3]约瑟夫·熊彼特.经济发展理论[M].何畏,易家详,译.北京:商务印书馆,1990:72-82.
[4]YE Q,DAI S,ZENF G.Research on the effects of command-andcontrol and market-oriented policy tools on China’s energy conservation and emissions reduction innovation[J].Chinese journal of population,resources and environment,2018,16(1):1-11.
[5]约瑟夫·P.托梅因,理查德·D.卡达希.能源法精要[M].第二版.万少廷,译.天津:南开大学出版社,2016:33.
[6]刘振亚.全球能源互联网[M].北京:中国电力出版社,2015:71-99.
[7]刘宇晖.对我国电力法体系的构想---以构建和维护竞争性电力市场为价值目标[J].河北法学,2008(7):121-124.
[8]张占江.自然垄断行业的反垄断法适用---以电力行业为例[J].法学研究,2006(6):53-68.
[9]张昕竹,让·拉丰,安·易斯塔什.网络产业:规制与竞争理论[M].北京:社会科学文献出版社,2000:132.
[10]沃尔特·帕特森.电力革命[M].曹乐人,译.北京:科学普及出版社,2007:3.
[11]吕忠梅.体制改革后的电力立法模式选择[J].理论月刊,2003(11):101-104.
[12]卢现祥.转变制度供给方式,降低制度性交易成本[J].学术界,2017(10):36-49.
[13]马丽梅,史丹,裴庆冰.中国能源低碳转型(2015-2050):可再生能源发展与可行路径[J].中国人口·资源与环境,2018(2):8-18.
[14]丹尼尔,戈兰.电力系统经济学原理[M].朱治中,译.北京:中国电力出版社,2007:4-7.
[15]史际春,肖竹.反公用事业垄断若干问题研究---以电信业和电力业的改革为例[J].法商研究,2005(3):57-65.
[16]潘天蔚.中国大陆、美国与英国电价管制比较研究[J].月旦财经法学杂志,2008(14):151-172.
[17]马俊驹,龚向前.论能源法的变革[J].中国法学,2007(3):147-155.
[18]CHEN S X,HUANG J B.Forecasting China’s primary energy demand based on an improved AI Model[J].Chinese Journal of population,resources and environment,2018,16(1):36-48.
[19]WANG Q,WU ST.Carbon trading thickness and market efficiency in a socialist market economy[J].Chinese journal of population resources and environment,2018,16(2):109-119.
[20]张忠民.我国能源诉讼专门化问题之探究[J].环球法律评论,2014(6):27-44.
[21]陈雪.“反窃电”低效问题的理论检视与制度完善---以《电力法》修订为背景[J].河北学刊,2014(6):162-165.