统一大市场视域下反垄断事务的共同事权属性及其实施结构

The Nature and Implementation Structure of Common Authority of Anti-monopoly under the Unified National Market

出于建设全国统一大市场的需要,中国反垄断法历来将反垄断事务界定为中央事权。然而,在近年来加快建设全国统一大市场的背景下,国家市场监管总局却将执法权一揽子授权和委托给省级市场监管部门,从而形成了事实上的央地双层执法结构。这种分权执法模式和欧盟执法的非集权化改革以及美国“反垄断联邦制”的执法结构存在共通之处。基于过往执法效果的认知和域外经验的启示,推动构建全国统一大市场不能通过事前限权的路径来追求执法标准的统一,而应该在充分执法的基础上构建统一标准的事后规范机制。对应地,业已形成的双层执法结构应被视为反垄断事务从中央事权迈向共同事权的转捩。在此基础上,还需要构建与共同事权属性相匹配的实施结构,包括中央执法工作重心的转向,地方执法行权空间的形塑,以及中央和地方统一执法标准的协调合作机制。

In order to build a unified national market,China's anti-monopoly law has in the past defined anti-monopoly enforcement as a matter for which the central government is responsible.However,under the goal of accelerating the construction of a unified national market in recent years,the State Administration of Market Supervision has delegated and entrusted enforcement powers to provincial market supervision authorities,thus creating two-tier centralised law enforcement structure at the de facto level.This decentralised enforcement model is in line with the history of the EU's decentralised enforcement reforms and the enforcement characteristics of the US"antitrust federalism".Based on the knowledge of past enforcement effects and the inspiration of extra-territorial experience,the unity of enforcement standards cannot be pursued through the path of ex ante restriction of power,but rather the ex post regulatory mechanism of unified standards should be constructed on the basis of full enforcement.Therefore,the two-tier enforcement structure should be seen as a turning point in anti-monopoly affairs from central responsibilities to common authority.In addition,there is need to build an implementation structure that matches the common authority,including policy steering for central government's enforcement,space for local enforcement,and communication and coordination mechanism for the harmonisation of enforcement standards at the central and local levels.