煤炭产业市场进入管制初探

自2005年以来,在全国开展了大规模的煤炭资源整合。与此同时,《煤炭法》进入修改程序,修改的基本目的是将煤炭资源整合的成果用法律形式固定下来。2009年底,正在修改中的《煤炭法》首次提到建立行业准入制度。煤炭资源整合仅是一种事后处置,应当由事前管制的市场准入制度取代常态化的资源整合。市场进入管制研究的主要对象是实质性进入管制理论,一般分为经济性管制和社会性管制。《煤炭法》在设立市场进入门槛时,必须在明晰政府与市场分工的基础上,准确界定市场进入管制的目标和对象。煤炭行业表现为经济的负外部性,属于市场失灵时的表现。煤炭行业进入管制的重心应是安全和环境的社会管制,是预防风险和威胁发生的事前管制,事中监督与事后处置只能作为事前管制的辅助和连续状态,《煤炭法》的修改中应设专章规定体现社会管制的特许权制度。煤炭行业不需要基于过度进入的经济管制,其理由一是因信息缺乏而导致政府失灵;二是因资本优势而出现资源垄断;三是因管制而滋生权力腐败。对于符合规划和计划的煤炭资源资产,应当允许其在流转市场自由进入。

A Discussion about Coal Market Access Control

Since 2005,China has been engaged in a nationwide campaign to integrate coal resources.In the same period,the Law of Coal started the revision process,the objective of which was to write the achievements of the coal resource integration into law.At the end of 2009,the Law of Coal under revision proposed to establish a market access mechanism for the coal industry for the first time.Integration of coal resources is only a post-event treatment and shall be replaced by a market access system which is a pre-event regulatory measure.The main object of the study on market access control is substantive access regulation theories.Such control is generally divided into economic regulation and social regulation.When setting market access standards,the Law of Coal must set out the objectives and object of the regulation of market access while clearly defining the different functions of the government and market forces.To the economy ,the coal industry exhibits a negative externality and is the representation of malfunction of market.The focus of access control for the coal industry should be the social regulation of safety and environment.The access control for the coal industry is a pre-event regulation aimed to prevent risks and threats and in-event supervision and post-event treatment can only serve as a supplement to,and the continuation of,the pre-event control.The Law of Coal under revision should have a chapter setting out a franchise system that represents social regulation.The coal industry does not need economic regulation based on excessive access as firstly ,the lack of information will cause a malfunction of the government,secondly the advantage in capital will result in a monopoly on resources,and thirdly regulation may encourage abuse of power.Coal assets in line with development plans should be allowed to freely enter the circulation market.