論經營者集中申報標準實施機制的完善

The Improvement of Reporting Standards Enforcement Mechanism on Operators Merge

經營者集中申報標準的實施是在法定標準與執法自由裁量權的有機融合中動態實現的，當法定標準對實際案件涵攝不足時，執法機構應在自由裁量範圍內主動發起調查。目前，法定標準與自由裁量權的行使存在斷裂：一方面，以營業額為依據的定量申報方式存在靈活性不足、不精確且在實質上損害競爭等弊端，尤其是忽視產業經濟特徵、智慧財產權、技術創新等不可量化因素對企業市場地位的影響，無法對網路經濟領域的經營者集中作出有效識別；另一方面，自由裁量權未受到充分約束，存在濫用與怠政風險，執法行為不能有效回應市場主體的利益關切。應以“營業額與蓋然性市場份額結合的一般申報標準－－符合具體產業特徵的特殊申報標準－－可問責的執法自由裁量行為”來優化申報標準實施機制：以營業額與蓋然性市場份額標準相結合改造法定申報標準；通過制定專門申報指南滿足網路經濟等特殊產業的申報要求；將不可量化因素引入申報標準體系，通過自由裁量權規範行使推動申報標準有效運行；同時，加強程序控制和引入問責制強化內部控制，防範自由裁量權的濫用與怠政，並在外部建立司法監督機制。

The implementation of reporting standards rely on the integration between statutory reporting standard and discretionary power. But statutory reporting standard neglects the influence of unquantifiable factors, such as characteristics of network economy, intellectual property, technology innovationetc, and the 'turnover' criterion is unable to detect the concentration on internet enterprises. On the other hand the discretionary power is not fully constrained, which especially does not comply with standard of declaration nor substantially has the anti-competitive power. The reporting standards should include saleroom, market share and unquantifiable factors, and set the Specific Standard Operating Procedures for internet enterprises. At the same time, by means of procedure control, accountability system and judicial supervision guarantee the discretionary power will not be abused.