公用事业公私合作模式中的限制竞争与规制对策
|
摘要
竞争机制和有效监管是公用事业公私合作模式成功的关键。在我国尚处于探索阶段的公私合作模式已经在实际运营中突显出滥用市场支配地位、协议垄断和行政垄断等问题,亟待构建系统性法律制度来维持有序竞争、实施有效监管。笔者认为,可以通过完善公私合作模式的现存法律制度、在涉及竞争问题的立法时落实公平竞争审查制度、逐步缩小公用事业领域反垄断法适用除外的范围、推动产业规制与竞争政策的协调运作、改善准入规制、扩大社会资本参与、建立监管中立的政策环境等措施来促进公用事业公私合作模式的有序竞争。
Efficient competition and effective regulation are essential for the success of Public-Private Partnerships( PPP) in the field of public utilities. Although China 's PPP projects are still at the exploratory stage, problems concerning project enterprises' abuse of dominant positions, monopoly agreements and administrative monopolies have already occurred.Establishing systematic legal institutions to promote fair competition and implement effective regulation is in urgent need. To effectively promote competition in the PPP projects,the following responsive measures can be taken: improving existing PPP-related laws and regulations,implementing "fair-competition-review" mechanism when PPP-related law-making process concerns competition issues,gradually reducing Anti-Monopoly Law's exemptions in its application in the public utility fields,enhancing the coordination between industrial regulation and competition policies,easing market access restrictions to promote competitors' participation,and establishing a regulatory neutral environment to level the playing field for both private and stateowned enterprises.
Efficient competition and effective regulation are essential for the success of Public-Private Partnerships( PPP) in the field of public utilities. Although China 's PPP projects are still at the exploratory stage, problems concerning project enterprises' abuse of dominant positions, monopoly agreements and administrative monopolies have already occurred.Establishing systematic legal institutions to promote fair competition and implement effective regulation is in urgent need. To effectively promote competition in the PPP projects,the following responsive measures can be taken: improving existing PPP-related laws and regulations,implementing "fair-competition-review" mechanism when PPP-related law-making process concerns competition issues,gradually reducing Anti-Monopoly Law's exemptions in its application in the public utility fields,enhancing the coordination between industrial regulation and competition policies,easing market access restrictions to promote competitors' participation,and establishing a regulatory neutral environment to level the playing field for both private and stateowned enterprises.
引文
[1] E·S·萨瓦斯.民营化与公私部门的伙伴关系[M].周志忍译,北京:中国人民大学出版社,2002. 124-135.
[2]约瑟夫·斯蒂格利茨,张昕竹等译.促进规制与竞争政策:以网络产业为例[J].数量经济技术经济研究,1999,(10):51-57.
[3]史际春,肖竹.公用事业民营化及其相关法律问题研究[J].北京大学学报(哲学社会科学版),2004,(4):79-86.
[4] Mill,S. Principles of Political Economy[M]. New York:A. M. Kelley,1965. 962.
[5] Walras,L.,Holmes,P. The State and the Railways[J]. Journal of Public Economics,1980,13(1):81-100.
[6] Foster,C. Privatization,Public Ownership and Regulation of Natural Monopoly[M]. Oxford:Blackwell,1992. 161.
[7]王俊豪.论自然垄断产业的有效竞争[J].经济研究,1998,(8):42-46.
[8] Berg,S.,Tschirhart,J. Natural Monopoly Regulation:Principles and Practice[M]. New York:Cambridge University Press,1988. 480.
[9] Baumol,W. Contestable Markets:An Uprising in the Theory of Industry Structure[J]. The American Economic Review,1982,72(1):457-471.
[10] Baumol,W.,Panzar,J.,Willig,R. Contestable Markets and the Theory of Industry Structure[M]. New York:Harcourt Brace Jovanovich,1982. 7.
[11] Demsetz,H. Why Regulate Utilities[J]. Journal of Law and Economics,1968,11(1):55-65.
[12]陈婉玲.公私合作制的源流、价值与政府责任[J].上海财经大学学报,2014,(5):75-83.
[13]白让让,王光伟.结构重组、规制滞后与纵向圈定:中国电信、联通反垄断案例的若干思考[J].中国工业经济,2012,(10):135-147.
[14]王文宇.正本清源:评台电与民营电厂纷争涉及的多重法律议题[J].月旦法学杂志,2013,(6):64-92.
[15]马维辉.国企PPP项目金额为民企三倍:PPP潜规则之痛[N].华夏时报,2016-07-25.
[16] Lin,L.,Milhaupt,C. We Are the(National)Champions:Understanding the Mechanisms of State Capitalism in China[J]. Stanford Law Review,2013,65(4):697-760.
[17]臧俊恒. PPP项目中反垄断风险规制路径分析[J].财经政法资讯,2016,(4):41-51.
[18]管清友,刘洁. PPP发展中的障碍[J].中国金融,2015,(15):25-27.
[19]詹镇荣.公私协力与行政合作法[M].台北:新学林出版社,2014. 310.
[20]张占江.竞争倡导研究[J].法学研究,2010,(5):113-127.
[21]徐士英.竞争政策视野下行政性垄断行为规制路径新探[J].华东政法大学学报,2015,(4):27-39.
[22]苏永钦.走入新世纪的私法自治[M].北京:中国政法大学出版社,2002. 183.
[23]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.
[24]曾晶.论规制行业的反垄断法规制[J].政治与法律,2015,(6):85-97.
[25]史际春.公用事业引入竞争机制与反垄断法[J].法学家,2002,(6):59-65.
[26]王俊豪.中国垄断性产业结构重组分类规制与协调政策[M].北京:商务印书馆,2005. 91.
[27]何源.垄断与自由间的公用事业法制革新:以电信业为例[J].中外法学,2016,(4):1083-1100.
[28]安东尼·奥格斯.规制:法律形式与经济学理论[M].骆梅英译,北京:中国人民大学出版社,2008. 333.
[29]井敏.竞争性市场:PPP模式有效运行的前提[N].学习时报,2015-10-12.
(1)参见国家工商行政管理总局竞争执法公告2016年13号,宿迁银控自来水有限公司垄断行为案。
(1)参见国家工商行政管理总局竞争执法公告2016年2号,青岛新奥新城燃气有限公司滥用市场支配地位案。
(2)参见国家工商行政管理总局竞争执法公告2017年3号,吴江华衍水务有限公司滥用市场支配地位案。
[2]约瑟夫·斯蒂格利茨,张昕竹等译.促进规制与竞争政策:以网络产业为例[J].数量经济技术经济研究,1999,(10):51-57.
[3]史际春,肖竹.公用事业民营化及其相关法律问题研究[J].北京大学学报(哲学社会科学版),2004,(4):79-86.
[4] Mill,S. Principles of Political Economy[M]. New York:A. M. Kelley,1965. 962.
[5] Walras,L.,Holmes,P. The State and the Railways[J]. Journal of Public Economics,1980,13(1):81-100.
[6] Foster,C. Privatization,Public Ownership and Regulation of Natural Monopoly[M]. Oxford:Blackwell,1992. 161.
[7]王俊豪.论自然垄断产业的有效竞争[J].经济研究,1998,(8):42-46.
[8] Berg,S.,Tschirhart,J. Natural Monopoly Regulation:Principles and Practice[M]. New York:Cambridge University Press,1988. 480.
[9] Baumol,W. Contestable Markets:An Uprising in the Theory of Industry Structure[J]. The American Economic Review,1982,72(1):457-471.
[10] Baumol,W.,Panzar,J.,Willig,R. Contestable Markets and the Theory of Industry Structure[M]. New York:Harcourt Brace Jovanovich,1982. 7.
[11] Demsetz,H. Why Regulate Utilities[J]. Journal of Law and Economics,1968,11(1):55-65.
[12]陈婉玲.公私合作制的源流、价值与政府责任[J].上海财经大学学报,2014,(5):75-83.
[13]白让让,王光伟.结构重组、规制滞后与纵向圈定:中国电信、联通反垄断案例的若干思考[J].中国工业经济,2012,(10):135-147.
[14]王文宇.正本清源:评台电与民营电厂纷争涉及的多重法律议题[J].月旦法学杂志,2013,(6):64-92.
[15]马维辉.国企PPP项目金额为民企三倍:PPP潜规则之痛[N].华夏时报,2016-07-25.
[16] Lin,L.,Milhaupt,C. We Are the(National)Champions:Understanding the Mechanisms of State Capitalism in China[J]. Stanford Law Review,2013,65(4):697-760.
[17]臧俊恒. PPP项目中反垄断风险规制路径分析[J].财经政法资讯,2016,(4):41-51.
[18]管清友,刘洁. PPP发展中的障碍[J].中国金融,2015,(15):25-27.
[19]詹镇荣.公私协力与行政合作法[M].台北:新学林出版社,2014. 310.
[20]张占江.竞争倡导研究[J].法学研究,2010,(5):113-127.
[21]徐士英.竞争政策视野下行政性垄断行为规制路径新探[J].华东政法大学学报,2015,(4):27-39.
[22]苏永钦.走入新世纪的私法自治[M].北京:中国政法大学出版社,2002. 183.
[23]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.
[24]曾晶.论规制行业的反垄断法规制[J].政治与法律,2015,(6):85-97.
[25]史际春.公用事业引入竞争机制与反垄断法[J].法学家,2002,(6):59-65.
[26]王俊豪.中国垄断性产业结构重组分类规制与协调政策[M].北京:商务印书馆,2005. 91.
[27]何源.垄断与自由间的公用事业法制革新:以电信业为例[J].中外法学,2016,(4):1083-1100.
[28]安东尼·奥格斯.规制:法律形式与经济学理论[M].骆梅英译,北京:中国人民大学出版社,2008. 333.
[29]井敏.竞争性市场:PPP模式有效运行的前提[N].学习时报,2015-10-12.
(1)参见国家工商行政管理总局竞争执法公告2016年13号,宿迁银控自来水有限公司垄断行为案。
(1)参见国家工商行政管理总局竞争执法公告2016年2号,青岛新奥新城燃气有限公司滥用市场支配地位案。
(2)参见国家工商行政管理总局竞争执法公告2017年3号,吴江华衍水务有限公司滥用市场支配地位案。