中国石油天然气行业的结构调整与监管改革

The Restructuring & Regulatory Reform of the Oil and Gas lndustry in China

随着近年来社会主义市场经济体制的逐步建立,政府对油气行业的管理已从主要依靠政策转向主要依靠法律。并且正在不断规范和完善。但面对石油供应安全、环境保护以及加入WTO后的压力,原先的政府监管模式越来越不适应我国油气工业发展的需要,必须逐步创建竞争性的行业结构,构造现代化的监管框架,以规范政府对油气行业的监管,促使有序竞争的市场格局的形成。基本思路是在油气产业链的各环节中,区别自然垄断和非自然垄断领域,对非自然垄断领域采取逐步放松管制、鼓励竞争的政策,监管的重点是建立公平竞争的市场环境,以充分发挥市场的作用;在自然垄断领域以政府监管替代市场,通过价格管制、公平介入、普遍服务等手段,在保证行业的规模经济性的同时,防止企业滥用垄断优势,维护公众利益。对像我国这样处在“转轨经济”中的国家而言,完善政府监管的实质是监督整个行业的市场化进程以实现体制转轨的平稳过渡和政府职能的转变。建立现代监管框架宜采用渐进方式。

Following the step-by-step establishment of the socialist market economic system in China, government regulations for the oil & gas industry has shifted from dependence on policy to dependency on law, and these regulations are being normalized and improved. Hut under the pressures of oil supply security, environmental protection, and World Trade Organization entry, the former regulatory model is more and more inadequate to develop the oil & gas industries in China. It is necessary to create a competitive industrial structure and to devise a modern gov eminent regulatory scheme to boost the formation competitive markets. The basic guiding notion is to distinguish natural monopoly fields from artificial monopoly fields in the component parts of the oil & gas industries. In artificial monopoly fields, the policy is to loosen regulation and to encourage competition. The crux of regulatory reform is to establish a market environ mcnt with fair competition, in order to uti lizc market functions fully. In the natural monopoly field, the market should be re placed with government regulatory control. By means of price regulation, fair access and general service, economy of scale is main- tairied while the enterprise is prevented trom abusing its monopoly advantage. At the same time, the public interest, is protected. For a country in the process of economic transfer mation such as China, the essential goal in improving government regulation is to monitor the progress of the market reforms in the industry. Overall, U is better to establish a modern regulatory system on a gradual ha sis.