【作者】 单其文；

【导师】 王源扩；

【作者基本信息】 安徽大学 ， 经济法学， 2011， 博士

【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。更多还原

【Abstract】 Along with China’s city constructure rapid developing and people’s life level keep raising,people’s wish for sound and fast bouger become increasingly strong.But roads with increasingly traffic james and uninterruptedly worsen environment speak volume for the realistic dilemma in China’s urban public transportation.This dilemma not only restrains urban sustainable development,but also cut back poople’s well-being about city.Therefore, the height of quality and speed has bocome key indicator to verify Chinese government public service level and civil rights protected level.Moreover,among the rest of many countermeasures solving urban population’s bouge, urban public transportation has irreplaceable vital function.Urban public transportation is a special industry affecting national interest and people’s livelihood, belonging to quasi public goods and public service area.It has natural monopolization and economy of scale, unique market structure, remarkable industrial characteristics.Just based on the economic analysis and acquaintance on public interest objective about urban public transportation, western developed nations. universally adopt state and government public monopoly policy model on urban public transportation marker at early stage,in order to protect and promote industry growth by strongforceful government regulation. In 20th century seventies,although many countries taken reforms to urban public transportation for privatization, but the effect is not obvious. Public monopoly patterns be represented by the United States are still manifest powerful life-force in urban public transportation regulation. No matter what adjustment and change in western developed nations’ urban public transportation regulation policy, legality always lead very process in urban public transportation reforms.Urban public transportation initial starting is later in China, on account of chronically excluding application of western economic theory, national monopoly pattern of urban public transportation in China’s planned economy time is not in view of understanding natural monopoly. Since reform and opening-up,China carry out reform in urban public transportation for marketization direction step by step,at the same time,carry out strypped-down on state-owned urban public transportation enterprises. China urban public transportation initially form diversification capital setup by reform oriented by state-owned economy,meanwhile,promote the industry competition level at remarkable extent,improve economic efficience and relieve fiscal burden.But in the process of urban public transportation marketization,Because China seriously lack related legislation,the reform exposesd many problems such as objective indistinct; industry fixed position inaccurate,general train of thought obscurity,related rules incompatibility.These problems reduced the reform effect greatly and didn’t promote remarkablely the whole level of China urban public transportation. Under these circumstances, China urban public transportation should insist on public interest objective, walking along government regulation road rule by law.Bacuse economic law is possessed of standard of society and public interest,it is bound to be tools for adjusting urban public transportation regulation legal relationship.General assumption of economic regulation construction on urban public transportation is to build legal frame taking economic law as backbone and realize the regulation of urban public transportation rule by law. The frame should be a unity, taking consititution as base stone,and urban public transportation law as core, composed of Macro-adjustment and control law such as Industries poilcy law, Fiscal law and Tax law, etc, Regulation law such as Market antimonopoly law,etc and social law such as Labor law, Environmental protection law, Social security law etc. Ihe construction of legal frame is to establish elementary object of regulation organization, maintaining public interests, ensuring service quality of urban public transportation, defending market competition in order,clear and definite seven fundamental principles of regulation,such as government intervention, regulation according to law, independent regulation, moderate regulation, people oriented,material equity, combination of enterprise self regulation and social supervision. In the condition of regulation aim and principle fixed,chooseing regulation agency conformed to China national life and industry characteristics is precondition to realize regulation target. At present, China regional urban public transportation still exists problems of disunity regulation agency and unsharpness regulation function, on the basis of considering self factor of urban public transportation and China organizational form of political power, urban public transportation regulation agencies should be set unitedly in central authorities, Province(including municipalities directly under the Central Government and autonomous regions), prefectural-level cities,there is a leadership relationship between subordinates and superiors in the agencies.The basic functions of regulation agencies in deferent levels should be united, including supervision in the round to programming, investment, construction, quality, environmental protection, price and admission.At the same time,there should have distinctions in specific functions between national and district regulation agencies.Moreover,the realization of rule by law put into practice can’t do without definite economic law regulation rights and obligations and procedure.Which can clear the side of authority and right, the procedure of power and right exercise, ascertain where the responsibility lies and remedy system of rights,then realize public interests by defending market workable competition in microscopic view.Furthermore,the economic law regulation construction of urban public transportation contains below contents:1, Economic law regulation on urban public transportation admission.The dissertation want to build admission mechanisms on stratum level and competition by surrounding such a target that protect urban public transportation natural monopoly status, restrain illegal monopoly,defend fair competition in the market.2, Economic law regulation on urban public transportation price. The dissertation want to build multiple-unit price-setting mechanism,fair and scientific fiscal subsidy mechanism,then play a big role in price regulation combining industry features by making sure governmental responsibility on price regulation,bouger safeguard and sociality value objective of urban public transportation price regulation.3, Economic law regulation on urban public transportation quality of service. The dissertation want to build unified regulation facility of urban public transportation, formulate quality of service standard of urban public transportation, strict related liability of Economic law regulation on urban public transportation quality of service.4, Economic law regulation on urban public transportation social responsibility. The dissertation want to clear and definite legal obligation of urban public transportation social responsibility, safeguard the working conditions of urban public transportation personnel, measures taken to realize urban public transportation low-carbon marketing and realize universal service by pro-poor regulation.5, Economic law regulation on urban public transportation state property. China urban public transportation have gigantic state property, bear great social responsibility. Whether or not safely protect it has to do with multiple objectives of runing the country in accordance with the law, well-off society, integration of urban and rural areas in China. It should be aimed at particularity of urban public transportation state property regulation, let state council and local government beyond state asset regulatory commission authorize specialized regulation organ in addition to perform duties to state-owned enterprises as contributor represented peer governments.At the same time,China should build such state property regulation systems as protection and restriction are equal importance, state-owned enterprises compete on an equal basis, intervene in state-owned enterprises reform,to perfect legal remedy for economic law regulation on urban public transportation.更多还原