我国城市公共交通经济法规制问题研究

发布时间：2018-06-04 19:11

本文选题：城市公共交通 + 经济法　；参考：《安徽大学》2011年博士论文

【摘要】：随着我国城市建设的快速发展和群众生活水平的不断提高,人们对又好又快出行的愿望愈加强烈。但日益拥堵的道路和不断恶化的环境却表明了我国城市交通目前所处的困境。这一困境不仅制约了城市的可持续发展,也大大降低了人们对所居住城市的幸福感。因此,出行质量和效率的高低已经成为检验我国政府公共服务水平和公民权利受保障程度的重要指标。而在当前解决城市人口出行问题的诸多对策中,城市公共交通具有不可替代的重要作用。城市公共交通是关系国计民生的特殊行业,具有自然垄断性和规模经济性,市场结构独特,行业特征显著,属于准公共产品和公共服务的范畴。正是建立在对城市公共交通经济学分析和公益性目标认识的基础上,西方发达国家对城市公共交通市场在早期较为普遍地采取了国家和政府公共垄断的政策模式,通过强有力的政府规制,保护和促进行业的健康发展。20世纪70年代后,尽管世界上很多国家对城市公共交通进行了以私有化为方向的改革,但效果并不明显。而以美国为代表的公共垄断模式依然在城市公共交通规制中显示出强大的生命力。无论西方发达国家城市公共交通规制政策有何调整变化,法制始终引领着城市公共交通改革的每一项进程。我国城市公共交通起步较晚,由于长期排斥西方经济学理论的运用,我国在计划经济年代对城市公共交通所采取的国家垄断模式并不是出于对自然垄断的认识。改革开放以来,我国在逐步对城市公共交通实行以市场化为方向改革的同时,还对国有公交企业进行了改制。通过改革,我国城市公共交通初步形成了以国有经济为主导,资本多元化的发展格局,在很大程度上提升了行业的竞争水平,提高了经济效率,减轻了政府财政负担。但在城市公共交通市场化的过程中,由于我国相关立法的严重缺失,改革的同时也暴露出目标不明确,行业定位不准确,总体思路不清楚,相关制度不配套等诸多问题,使得改革成效大为降低,并难以显著提升我国城市公共交通的整体水平。在这种情况下,我国城市公共交通必须坚持以公益性为目标,走法治化的政府规制道路。由于经济法所具有的社会本位性和公共利益性,使其理所当然地成为城市公共交通规制法律关系的调整工具。城市公共交通经济法规制建设总的设想是,建立以经济法为骨干的法制框架,实现城市公共交通规制的法治化。这个框架体系应以宪法为基石,以城市公共交通法为核心,包括产业政策法、财税法等宏观调控法,反垄断法等市场规制法以及劳动法、环境保护法、社会保障法等社会法为枝干的整体。通过法制框架的构建,树立规制机构维护社会公共利益、确保城市公共交通服务质量、维护市场有序竞争的基本目标,明确政府干预、依法规制、独立规制、适度规制、以人为本、实质公平、企业自律与社会监督相结合等七项基本的规制原则。在规制目标和规制原则既定的情况下,选择符合我国国情和行业特点的规制机构是实现规制目标的前提。目前我国各地城市公共交通的规制机构尚存在规制机构不统一、规制职能不清晰的问题。在考虑城市公共交通自身因素和我国国家政权组织形式的基础上,应在中央、省(包括直辖市、自治区)、地级市统一设置城市公共交通管理机构,这些机构上下级之间是领导和被领导的关系,不同层级的规制机构在基本职能上应该实现统一,包括对规划、投资、建设、质量、环境保护、价格、准入上的全面监管。但在统一设置的同时,国家和地方的规制机构在具体职能上应有所区别。法治化的实现要具体落实到明确的经济法规制法律权利义务和经济法规制程序,以此明晰权力、权利的边界,权力、权利行使、履行的方法步骤,责任的追究和权利的救济,从法治的微观层面维护市场的有效竞争,实现社会公共利益。城市公共交通经济法规制建设还应包括以下规制内容：1、城市公共交通准入经济法规制。围绕保护城市公共交通自然垄断地位、遏制城市公共交通市场中的非法垄断、保护城市公共交通市场公平竞争的目标,建立城市公共交通“层级进入机制”和“进入竞争机制”。2、城市公共交通价格经济法规制。明确政府价格规制和保障出行的责任,明确城市公共交通价格规制的社会性价值目标,形成多元的城市公共交通定价机制和公平、科学的财政补贴机制,并结合行业的特点发挥价格规制作用。3、城市公共交通服务质量经济法规制。建立统一的城市公共交通服务质量监管机构,制定城市公共交通服务质量标准,严格城市公共交通服务规制的相关责任。4、城市公共交通社会责任经济法规制。明确城市公共交通社会责任的法律义务,保障公交企业员工劳动福利待遇,多措并举实现城市公交的低碳运营,采用亲贫规制实现普遍服务。5、城市公共交通国有资产经济法规制。城市公共交通国有资产庞大,承载着重大的社会责任,能否对其实现稳妥保护关系到我国依法治国、小康社会和城乡一体化等多重目标的实现。必须针对城市公共交通行业国有资产保护规制的特殊性,由国务院和地方人民政府在国资委之外,另外授权专门的规制机构代表本级人民政府对国家出资企业履行出资人职责。同时建立城市公共交通国有资产保护与限制并重的规制制度、城市公共交通国有企业平等参与市场竞争制度和城市公共交通国有企业改革干预制度,完善城市公共交通国有经济经济法规制的救济机制。
[Abstract]:With the rapid development of urban construction and the continuous improvement of the living standards of the masses, the desire for good and fast travel has become stronger and stronger. However, the increasingly congested road and the worsening environment have shown the plight of urban traffic in our country. This dilemma not only restricts the sustainable development of the city, but also greatly reduces the people. Therefore, the quality and efficiency of travel has become an important indicator to test the level of public service and the protection of civil rights in our government. In the current solutions to the problem of urban population travel, urban public transport has an irreplaceable and important role.
Urban public transportation is a special industry related to the national economy and the people's livelihood. It has natural monopoly and economies of scale, unique market structure and significant industry characteristics. It is based on the economic analysis of urban public transportation and the understanding of public welfare items in the western developed countries. In the early period, the common traffic market adopted the policy mode of public monopoly of the state and government. Through the strong government regulation, the healthy development of the industry was protected and promoted in the 70s of.20. Although many countries have carried out the reform of the urban public transport in the direction of privatization in the world, the effect is not obvious. The public monopoly model represented by the country still shows strong vitality in the regulation of urban public transport. No matter what the regulation and regulation of urban public transport regulation in western developed countries have changed, the legal system has always led to every process of urban public transport reform.
The urban public transportation in China started late. Because of the long-term exclusion of the western economics theory, the state monopoly model of urban public transport in our planned economy era is not out of the understanding of natural monopoly. Since the reform and opening up, China has gradually carried out the market-oriented reform of the urban public transport in the same direction. In addition, the state-owned public transport enterprises have been reformed. Through the reform, the urban public transport in China has initially formed the development pattern dominated by the state economy and the diversification of capital. It has greatly promoted the competition level of the industry, improved the economic efficiency and alleviated the government's financial and political burden. But in the process of the market of urban public transportation, Due to the serious lack of relevant legislation in China, the reform has also exposed the inaccuracy of the target, the inaccurate position of the industry, the overall thinking, the related system and other problems, which have greatly reduced the effect of the reform, and it is difficult to significantly improve the overall level of urban public transport in China. In this case, the public transport of our cities We must adhere to the goal of public welfare and take the road of government regulation by rule of law. Because of the social standard and public interest of the economic law, it makes it the adjustment tool of the legal relationship of urban public transport regulation.
The general idea of the regulation and construction of urban public transportation economic law is to establish a legal framework with economic law as the backbone to realize the rule of law of urban public transport regulation. This framework should take the constitution as the cornerstone and take the urban public transport law as the core, including the industrial policy law, the financial and tax law, and the anti monopoly law and other market regulation laws. And labor law, environmental protection law, social security law and other social law as a whole. Through the construction of the legal framework, setting up the regulatory bodies to maintain social and public interests, ensuring the quality of urban public transport services, maintaining the basic goal of orderly competition in the market, clear government intervention, regulation by law, independent regulation, moderate regulation, people oriented, people oriented, and real The seven basic rules of regulation, such as quality fairness, enterprise self-discipline and social supervision, are the precondition for the regulation organization to meet the national conditions and industry characteristics of our country. At present, the regulatory bodies of urban public transportation in various parts of China are still not unified and regulated at present. On the basis of the self factors of urban public transport and the form of the state power organization of our country, the urban public transport management institutions should be set up in the central, provincial (including municipalities, autonomous regions), and the cities of the prefecture level. The relations between the upper and lower levels of these institutions are leading and led, and the regulatory bodies at different levels are in the base. It should be unified, including the overall supervision of planning, investment, construction, quality, environmental protection, price and access. But at the same time, the specific functions of the state and local regulation institutions should be different. The realization of the rule of law should be concretely implemented to the clear economic law to regulate the legal rights and obligations and economic laws and regulations. In order to clarify power, the boundary of rights, power, exercise of rights, the steps of performance, the investigation of responsibility and the relief of rights, the effective competition of the market is maintained from the microcosmic level of the rule of law and the social and public interests are realized.
The regulation construction of urban public transportation economic law should also include the following regulations: 1, the regulation of urban public transport access economic law. It is to protect the natural monopoly status of urban public transportation, curb illegal monopoly in urban public transportation market, protect the fair competition of urban public transportation market, and establish the level of urban public transport. To enter the mechanism "and" enter the competition mechanism ".2, the urban public transportation price economic law regulation, clear the government price regulation and the responsibility of ensuring the trip, clear the social value target of the urban public transportation price regulation, form the multiple urban public transportation pricing mechanism and the fair, scientific financial subsidy mechanism, and combine the industry special. We should give full play to the role of price regulation.3, the regulation of urban public transport service quality economic law, the establishment of a unified urban public transport service quality supervision institution, the establishment of urban public transport service quality standards, strict urban public transport service regulation related responsibility.4, urban public exchange social responsibility economic law regulation. The legal obligation of social responsibility ensures the labor welfare treatment of the employees of the public transport enterprises, and measures to realize the low carbon operation of urban public transportation, and realizes the universal service.5 by Pro poor regulation. The state assets economy law of urban public transportation is regulated. The state-owned assets of urban public transportation are huge and bear great social responsibility. The protection is related to the realization of the multiple objectives of governing the country by law, the well-off society and the integration of urban and rural areas. It must be aimed at the particularity of the protection and regulation of the state-owned assets of the urban public transportation industry. The State Council and the local people's government are outside the SASAC, and the special regulatory agencies are authorized to represent the state funded enterprises on behalf of the local people's government. At the same time, the regulation system of the state assets protection and restriction of urban public transportation is also established. The state-owned enterprises of urban public transport are equal to participate in the market competition system and the reform intervention system of the state-owned enterprises in urban public transportation, and improve the relief mechanism of the State Economic and economic regulation system of urban public transportation.
【学位授予单位】：安徽大学
【学位级别】：博士
【学位授予年份】：2011
【分类号】：D922.29;F572

【参考文献】