竞争政策执行“地方化”的现实风险与法治因应——基于“模糊—冲突”模型的分析

Realistic Risks and Rule of Law Responses on Localization of Competition Policy Implementation——An Analysis Based on the Ambiguity-Conflict Model

在“强化竞争政策基础地位”入法的背景下,竞争政策的有效执行日趋重要。竞争政策执行的“地方化”则是我国竞争政策有效执行的客观需求。从“模糊—冲突”模型观之,我国竞争政策执行“地方化”的主要样态为政治性执行和象征性执行:在政治性执行中,虽然竞争政策目标相对明晰,但纵向执行架构的内在冲突会抑损竞争政策的预期执行效果;在象征性执行中,竞争政策执行的模糊性和冲突性均较强,进而导致竞争政策执行目标趋于虚置。为对治前述风险,需构设兼含“授权环境—实施能力—公共价值”的体系化法治因应框架。具言之,在授权环境所勘定的总体限度下,一方面通过完善激励机制和规范例外规定的适用,补强公平竞争审查制度的刚性约束;另一方面需统合竞争政策的基础地位和政策工具的中立价值,在法治框架下择取具有目的适配性的政策工具。

Against the background of the inclusion of"strengthening the fundamental status of competition policy"in the law,the effective implementation of competition policy has become increasingly important.The"localization"of competition policy implementation is an objective need for the effective implementation of competition policy in China.From the viewpoint of the Ambiguity-Conflict Model,the main patterns of"localization"of competition policy implementation in China are political implementation and symbolic implementation:in political implementation,although the objectives of competition policy are relatively clear,the inherent conflict in the vertical implementation structure will inhibit the effective implementation of competition policy.In political implementation,although the objectives of competition policy are relatively clear,the inherent conflicts in the vertical implementation structure may undermine the expected implementation effects of competition policy;in symbolic implementation,the ambiguity and conflicts in competition policy implementation are higher,which leads to a tendency for the objectives of competition policy implementation to become illusory.In order to address these risks,a systemic rule of law response framework that encompasses"authorizing environment-operating capabilities-public value"is needed.In other words,within the overall limits set by the authoring environment,on the one hand,the rigidity of the fair competition review system should be strengthened by improving incentives and regulating the application of exceptions;on the other hand,it is necessary to harmonize the fundamental status of competition policy and the neutral value of policy instruments,and to select policy instruments with purposeful appropriateness under the framework of the rule of law.