中国自然垄断产业规制机构独立性的制度选择

为了保证规制的行政效率,建立独立于行政体系的规制机构已成为规制治理的国际趋势.但是,自然垄断产业规制与社会性规制的不同特点是立法权、执行权、裁决权集中于规制机构,规制机构享有广泛和自由裁量性的强制权力.规制机构的独立性意味着权力滥用的风险,必须保持法律控制的有效性才能实现规制制度的均衡.中国自然垄断产业规制机构存在着独立性不足的问题,但转型时期,还无法达到完全独立的制度目标.根据独立规制的制度目标和规制制度的国际经验,基于规制的现实条件,中国选择相对独立的规制模式是最为适宜的制度安排.

Institutional Choice of Independence of Regulatory Organizations for Naturally Monopolistic Industries in China

To ensure the administrative efficiency of legal rules and regulations,the trend is internationally to establish regulatory organizations to formulate regal rules and regulations with the independence from state administration system.In this respect,however,formulating the legal rules and regulations for the naturally monopolistic industries is different from those for social affairs,i.e.,the legislative authority,the power to execute and that of adjudication are all controlled by the regulatory organizations that possess the extensive and mandatory power to adjudicate something unrestrictedly.So the absolute independence of regulatory organizations involves the risk due to abuse of authority,and the balance of power in formulating/executing rules and regulations can be kept only if the validity of lawful control is kept up.In China the regulatory organizations are of incomplete independence in formulating rules and regulations for naturally monopolistic industries,but the complete or absolute independence as a target is impossible right away during the economic transform period.According to the experience from some foreign countries and China's actualities,preferring the relative independence for the regulatory organizations is the best way as an institutional choice.