垄断与自由间的公用事业法制革新 以电信业为例

The Legal System Innovation of Public Utility between Monopoly and Freedom Taking Telecom Market as an Example

公用事业因具有民生必需性与自然垄断性的特征,通常被国家独占经营,即"国有化"。目前公用事业国有化模式的弊端已较为凸显,且现有法律手段无法进行有效规制,以致"法律失灵"现象出现。德国的电信市场改革提供了公用事业从垄断到自由的改革经验,并指出关键问题在于兼顾"促进市场竞争"与"保障公共利益"两大目标。鉴于此,我国公用事业应从理论与制度两个层面进行革新。在理论上,公用事业法制革新是任务民营化与国家保障责任的内在要求。在制度上,应进行经济管制制度革新,围绕政府与业者、业者与业者、业者与消费者三对关系,对市场准入、网络接入、资费管制、普遍服务等制度进行改革与完善。

Public utility is usually state--owned because of its necessity for people and natural monop- oly, which is called ＂nationalization＂. The disadvantages of nationalization of public utility have already been highlighted and they could not be regulated effectively by laws, which is called ＂breakdown of law＂. The reform of teleeom market in Europe and Germany provided the experience about reform of public u- tility from monopoly to freedom and the key problem is how to balance the goals of ＂promoting the mar- ket competition＂ and ＂protecting public benefits＂. In theory, the reform of public utility in China should play out on two planes, one theoretical and the other institutional. Theoretically the legal system innova- tion is a basic requirement of administrative duty privatization and state guarantee responsibility. Institu- tionally, the law system of economic regulation should be completely changed or partially revised inclu- ding market access, open network, price regulation and universal service, etc