中國大陸反壟斷法立法研究─以「行政性壟斷」為核心之分析

Abstract

20世紀70年代末期，中國大陸開始奉行改革開放政策，逐漸放棄傳統的計劃經濟體制並進行轉向市場經濟體制的大範圍變革。1993年，大陸更以憲法明文確立其施行市場經濟制度的國家意志。此後，市場經濟法律體系被逐漸地建立、完善，其中競爭法制的發展歷程，不但堪稱此一時期法律變遷的佐證，更可作為這個體系構築過程的典型縮影。 隨著市場經濟體制不斷地深化，相關法律體系的完備必要性也就益發彰顯，大陸反壟斷法的立法腳步，正踏在這個時代浪潮之上穩步前進；復以2001年末大陸成功加入世界貿易組織（WTO），在“入世”承諾義務的推波助瀾下，作為反壟斷進程最重要指標的反壟斷立法，理所當然地加快了步伐；體制需求自內浮現，國際義務由外相加，一內一外的雙重推力，刻正合力排除所有立法障礙，即將催生一部完整的反壟斷法典。 大陸反壟斷立法的核心問題，在於行政性壟斷。行政性壟斷源於行政機關在經濟領域行使權力的環境背景，在不同體制的國家有不同程度的存在差異，而在政經體制轉軌不完全的大陸，它藉由人們競爭意識的低落、行政機關利益本位的自私天性，以及反壟斷既有規範的不備，大量而綿密地滋長於大陸社會的大小角落；行政性壟斷是一種具有外觀強制性的本質違法行為，它對於競爭機制與經濟自由的減損顯可想見，更重要的是，它對於大陸現代化進程的主旋律─提高經濟效率，亦有著難以想像的負面傷害，造成了龐大的經濟損失，必須儘速以反壟斷立法的法律手段，同步配合其他政、經措施的運用，加以有效遏制。 大陸的反壟斷法預計將在明年春天問世，據外界現可獲悉的草案資料顯示，反壟斷法將納入禁止行政性壟斷的專章規定，並在參考各國立法例的基礎之上，對於壟斷協議、濫用市場支配地位、經營者集中等典型限制競爭行為，分別設置予以禁止、管制，或者例外許可的規制方式。雖然草案架構堪稱完整，但在諸多細部規範的內容設計上，仍有值得再三評估之處，有待立法者在最後立法階段予以深思考量，並進行必要的修改與增補。

In the late 1970s, the People Republic of China (PRC) began its Reformation and Openness Policy, and put the transformation from Traditional Planning Economic System to Market Economic System into practice. The PRC showed its nation volition of practicing Market Economic System by the constitutional amendments in 1993. After that, the Law System of Market Economy has been established and completed progressively. The development of Competition Law could be the proof of the law transformation and the epitome of the system’s establishing process. As the Market Economic System has been integrated unceasingly, the essentiality of the Relating Law System’s completion has been more and more significant. The Legislation of Anti-monopoly Law of the PRC just results from this particular background. Furthermore, the PRC gained the access to the World Trade Organization (WTO) in 2001, and the responsibility of accession to the WTO has pushed ahead with the legislation, which is the most important landmark of the anti-monopoly process. The national system’s transformation and the duty of the international community are now smoothing all legislative barriers away in order to hasten a proper Anti-monopoly Law both at home and abroad. The core problem of the Legislation of Anti-monopoly Law of the PRC is Administrative Monopoly. Administrative Monopoly derives from exercising public authority in economic sphere by administrative organ, and it performs at different extent in distinct national system. Administrative Monopoly in the PRC, whose system transformation is incomplete, appears and develops rapidly everywhere by: (1) people’s weak consciousness of competition; (2) administrative organ’s strong selfishness; and (3) imperfect anti-monopoly regulations. Administrative Monopoly is a looking compulsoriness but the essence of it is a kind of illegal behavior. In addition to competitive function and economic freedom, Administrative Monopoly has badly destroyed the economic efficiency, which is the main goal of the PRC’s developing process, and has made a great deal of pecuniary loss. Accordingly, the PRC has to take action including the Legislation of Anti-monopoly Law and adopt other political and economical measures to restrain this kind of abuse. The Anti-monopoly Law of the PRC probably will be presented to the public in spring 2006. According to the Draft of Anti-monopoly Law of the PRC we can get, the law will subsume the specialized chapter of regulations for Administrative Monopoly. Also, the law will include prohibition of Cartel and its escape clauses, prohibition of Abusive Conduct of Market Dominating Enterprises, and Merger Control among its constituents by referring to other countries’ regulations. The constitution of this draft is roughly integrated, but there are still some faulty details need to be thought thoroughly and revised if necessary by the legislators during recent period.