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垄断行业价格监管要有制度保障

2017-09-06 06:21:42   中国青年网

近日,国家发展改革委出台《关于进一步加强垄断行业价格监管的意见》,标志着我国政府定价工作正在向更加合理的方向定位和转型,对垄断行业的价格监管工作进入了新阶段。

垄断行业价格监管是市场经济国家重要的政府职能。垄断行业价格监管的核心任务是确定合理价格,即通常所说的“定价”。目前,我国“政府定价”的范围已与发达市场经济国家接近,部分垄断行业定价也已尝试引入现代监管理念和方法,并取得了初步成效。

然而,理论研究和国内外实践均表明,相比政府监管机构和消费者,垄断企业始终拥有信息优势,其努力程度也不易为外界察觉,因而通常不会主动提高效率、降低成本,并且有动机隐瞒真实成本以提高价格。因此,即便是在发达市场经济国家,垄断行业价格的监管也非易事。

我国垄断行业价格监管要想取得预期效果,必须适应市场经济要求,借鉴国际先进理念和方法,推动价格监管体系和能力现代化。现代价格监管的基本理念是依规而为,即监管机构必须在法律授权范围内,依据特定的规则和程序履行职责,不能滥用自由裁量权,更不能朝令夕改。这样做,可提供稳定的政策预期,吸引更多投资、降低资金成本,并防止腐败行为发生。

垄断行业价格监管的现代化需要有关的制度和能力建设作为保障。

一是成熟先进的定价方法。包括总收入(平均价格水平)控制和价格结构设计。总收入控制以促进企业有效率可持续运营为原则,以经审核的成本(准许成本、合理收益)为基础,结合使用上限制、标尺竞争、效益分享等激励机制实现。价格结构设计须兼顾公平负担、引导合理供需、执行简便等原则,形成反映分类用户成本、引导资源合理配置的价格结构。

二是专用的管制会计准则。监管机构需根据各垄断行业特点和监管需要,制定反映生产过程和功能特点的成本分类、核算规则,从而为判断成本的合理性提供基础,国外常称之为“管制会计准则”。

三是成本信息搜集和跟踪监测系统。监管机构以上述“管制会计准则”为基础,制定成本信息报表系统,要求垄断企业定期填报,以跟踪监测垄断企业成本、投资、运行等价格监管需要的信息,消除信息不对称。

四是规范透明、利益相关方充分参与的监管程序。

五是持续的监管能力建设。

(作者系中国宏观经济研究院市场与价格研究所副研究员、价格监管室主任)

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