论经营者集中申报标准实施机制的完善

The Improvement of Reporting Standards Enforcement Mechanism on Operators Merge

经营者集中申报标准的实施是在法定标准与执法自由裁量权的有机融合中动态实现的,当法定标准对实际案件涵摄不足时,执法机构应在自由裁量范围内主动发起调查。目前,法定标准与自由裁量权的行使存在断裂:一方面,以营业额为依据的定量申报方式存在灵活性不足、不精确且在实质上损害竞争等弊端,尤其是忽视产业经济特征、知识产权、技术创新等不可量化因素对企业市场地位的影响,无法对网络经济领域的经营者集中作出有效识别;另一方面,自由裁量权未受到充分约束,存在滥用与怠政风险,执法行为不能有效回应市场主体的利益关切。应以"营业额与盖然性市场份额结合的一般申报标准——符合具体产业特征的特殊申报标准——可问责的执法自由裁量行为"来优化申报标准实施机制:以营业额与盖然性市场份额标准相结合改造法定申报标准;通过制定专门申报指南满足网络经济等特殊产业的申报要求;将不可量化因素引入申报标准体系,通过自由裁量权规范行使推动申报标准有效运行;同时,加强程序控制和引入问责制强化内部控制,防范自由裁量权的滥用与怠政,并在外部建立司法监督机制。

The implementation of reporting standards rely on the integration between statutory reporting standard and discretionary power.But statutory reporting standard neglects the influence of unquantifiable factors,such as characteristics of network economy,intellectual property,technology innovationetc,and the ' turnover' criterion is unable to detect the concentration on internet enterprises.On the other hand the discretionary power is not fully constrained,which especially does not comply with standard of declaration nor substantially has the anti-competitive power.The reporting standards should include saleroom,market share and unquantifiable factors,and set the Specific Standard Operating Procedures for internet enterprises.At the same time,by means of procedure control,accountability system and judicial supervision guarantee the discretionary power will not be abused.