数字平台垄断势力与反垄断事前监管

The Monopoly Power of Digital Platform and Antitrust Ex-Ante Regulation

有效的数字平台反垄断体制需要基于平台垄断的独特规律和竞争损害。数字平台垄断势力形成的基础是数据驱动的网络效应,平台垄断势力具有多层次性,表现为绝对垄断势力、相对垄断势力和生态垄断势力,会对消费者、商家、竞争平台等产生多重经济社会损害。以事后查处违法行为为主的传统反垄断体制无法有效规制平台垄断势力,无法充分实现保护市场竞争和增进社会福利的目标。因此,数字平台反垄断应重点强化事前监管,构建“事前监管+事后执法”反垄断新体制。“事前监管+事后执法”反垄断监管并非传统的行业监管,依然是市场监管,维护普遍的市场竞争是反垄断执法机关的职责和目标。在“事前监管+事后执法”反垄断新体制中,事前监管与事后执法是互补关系,可以实现最佳执法效果。为从根本上消除数据驱动的平台垄断势力,构建规范、透明、可预期的数字平台反垄断新体制,事前监管应确立以安全、公平、可竞争性为核心的有限多元目标,主要针对具有强垄断势力的平台,重点明确强垄断势力平台认定标准与合规经营行为规则,创新以赋能消费者、促进数据接入、对数据整合利用实施结构性限制为核心的反垄断监管政策工具。

The effective antitrust mechanism of digital platform should be based on the unique rules and competitive losses of platform monopoly. The basis of the strong monopoly power of digital platforms is the data-driven network effect;the platform monopoly power has multiple levels including absolute monopoly power,relative monopoly power and ecological monopoly power;and this may cause multiple social damages on consumers,businesses,and competitive platforms. The traditional antitrust mechanism taking ex-post antitrust enforcement system as the core cannot effectively regulate the platform power,and realize the target of protecting market competition and improving social welfare. Thus,the focus of antitrust enforcement under the digital economy is to strengthen the ex-ante regulation and build the new antitrust mechanism of“ex-ante regulation + ex-post enforcement”. And the new one is different from the traditional sector regulation;it belongs to market regulation aiming at promoting competition,which is the duty and purpose of related departments. In the new regulation mechanism,the relation between ex-ante regulation and ex-post enforcement is complementary,which can result in the best effect of enforcement. In order to fundamentally eliminate the digital-driven monopoly power,and establish the regulated,transparent,and predictable new antitrust mechanism,the ex-ante regulation should establish clear and limited goals taking safety,equity and competitiveness as the core;the focus of that should be platforms with strong monopoly power;the criterion used to identify platforms with strong monopoly power and rules of behaviors conforming to regulation should be clarified;and innovation should be used to enable consumers,promote data access,and implement antitrust supervision policy tools taking structural limitation as the core with the help of data integrated application.