從分離到合作--- 論電信事業設備競爭之防弊與興利

From Separation to Cooperation--- Research on Abuses Prevention and Advantages Promotion for Facility-based Competition in Telecommunications

王宗雄(Tsung-Hsiung Wang)

指導教授 ： 黃銘傑

國立臺灣大學/法律學院/法律學研究所/碩士(2011年)

https://doi.org/10.6342/NTU.2011.01855

摘要

值此數位匯流與次世代網路(Next Generation Network, NGN)技術已臻成熟之際，管制者依循電信市場主導者多係公營轉向民營、仍殘留市場優勢地位之前提下，所制定且實施十餘年之不對稱管制措施似亦應全盤檢討，以避免原本為「促進競爭」目的之電信管制措施，反而成為阻礙電信基礎設備競爭之絆腳石。
基此，本論文思考脈絡乃係先行提出管制機關負擔之國家擔保責任，並考量電信市場之公益性與技術快速革新性，從法律面分析競爭法與事業法兩者差異，檢討不對稱管制之功能與極限。進而，介紹各先進國家之電信改革經驗與對次世代網路之監理措施。最後，依據法理論述與各國管制經驗，配合我國現行固網寬頻發展現況，檢討通傳會(NCC)提出之「通訊傳播管理法」(2007年9月)、「電信法修正草案」(2011年5月)，有關市場主導者管制法規範之利弊得失。
本研究建議為，電信法管制仍係為「促進競爭」而設，有關市場界定、關鍵設施之指定，仍應與競爭法相符；管制者須積極檢討不對稱管制措施之正當性、必要性、有效性，通過歐盟三階段審查標準，方得予以例外適用；盡量鼓勵我國之市場主導者中華電信能自主實施功能分離措施；細分化接取措施應區分DSL與FTTX網路而異其適用，強制接取僅適用於DSL網路，並採取成本計價；FTTX網路部分，由於電信事業設備競爭上現已存在有線電視寬頻(CATV)與其它電話網路競爭業者，佈建條件與成本亦無差異，應屬可競爭市場，故應明白宣示FTTX網路乃係新興市場，不適用強制接取，使中華電信有誘因投入FTTX網路佈建。惟，中華電信仍須配合功能分離，強化細分化義務、會計分離之功能，以利成本透明公開，防免交叉補貼，使平等接取可得實現；減免不必要之資費管制，由競爭法事後檢視有無反競爭行為即可。
綜上，由於FTTX網路並無採強制接取與資費管制，既有事業有誘因進行積極佈建；新進競爭事業則可選擇採取服務競爭，以合作態度接取既有事業之基礎網路；亦可依循商業判斷與範疇經濟考量，藉由投資階梯理論投入NGN網路佈建，使電信事業邁向設備競爭，進而促進電信事業發展，增進消費者福利。

關鍵字

最後一哩 ； 細分化接取 ； 區域用戶迴路細分化 ； 不對稱管制 ； 關鍵設施 ； 投資階梯理論 ； 設備競爭 ； 次世代網路 ； 光纖到戶 ； 功能分離 ； 結構分離

並列摘要

The development of digital convergence and Next Generation Network (NGN) has matured in the recent years. This current State poses a challenge to asymmetric regulations, which are made on the basis of the former State monopolist with dominance position. Therefore, they should be comprehensively examined to see whether still in accordance with the purpose of promoting facility-based competition.
The author firstly introduces the Responsibility of Government in consideration of public interest and dynamic innovation. Then, the analyses on the differences between competition law and sector-specific law are conducted. Lastly, the author examines the “Communications Regulator Act” (September, 2007) and the revised draft of Telecommunications Law (May, 2011) according to the experience of reform in telecommunication and the measures of supervision about NGN in each developed country.
This study suggests that telecommunication regulations should be established based on the purpose of promoting competition. The definition of market and Essential Facility Theory should be in accordance with the Competition Law. Regulators should review the existing asymmetric regulations for the concerns of legitimacy, necessity, and effectiveness. It can be applied as an exception only when the three-steps rule of EU Commission is passed. Besides, NCC should encourage Chunghwa Telecom, the dominator in the telecom market of Taiwan, to practice functional separation on a voluntary basis. The measure of unbundled access should be suitable for DSL network but not FTTX. As for the FTTX, it could be classified as a contestable market because there is no difference in cost and limitations between incumbents and new competitors. Therefore, NCC should declare that FTTX network is one emerging market with no obliged access, thus offering Chunghwa Telecom incentive to devote to building FTTX infra network without hesitation.
At the same time, Chunghwa Telecom still has to coordinate with the functional separation to achieve transparency and equal access by means of unbundling and accounting separation.
In conclusion, Chunghwa Telecom should be motivated to build FTTX infra network with no pricing rule and forced-access regulation. The new competitors have two choices. One is to do service-based competition and access the incumbent infra network in a cooperative attitude. The other is to take the business judgment and scope economy into consideration, and then new competitors can decide whether or not to build their own new NGN infra based on the Investment Ladder Theory. Therefore it is hoped that the telecommunication industry would run under the condition of facility-based competition condition to boost the development of telecommunication business and further increase the consumers’ welfare.

並列關鍵字

Last Mile ； Unbundled Access ； Local Loop Unbundling ； Asymmetric Regulation ； Essential Facility ； Investment Ladder Theory ； Facilities-based Competition ； Next Generation Network ； Fiber-to-the-Home ； Functional Separation ； Structural Separation

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