行動通訊業務執照之發照制度分析--交易成本之研究途徑

Abstract

「電信自由化」趨勢下各國通常採用兩種制度發放執照，分別為「評審制」與「競標制」發照，而在我國兩種發照制度皆曾實施過。基本上，我國行政部門同意電信自由化的趨勢，但仍須謹慎評不同發照制度所可能造成的影響。鑑於此，本研究首先對於電信自由化背景作一介紹，次以兩種發照制度為主題，分析兩種發照制度對於發照機關與電信業者的交易成本高低所可能造成的影響。 本研究採交易成本研究途徑，參考Williamson之交易成本類型，定義電信執照發放過程中牽涉的「協商成本」、「資訊成本」、「監督(依從)成本」並以我國、日本與英國之發照經驗，分析兩種發照制度對於這三種交易成本的影響。研究發現，採評審制時，行政機關的「協商成本」與「資訊成本」較高，但「監督成本」較低；而在競標制中，「協商成本」與「資訊成本」降低，且發照效率高，但是卻有較高的「監督成本」。而在電信業者方面，評審制運作下業者的「資訊成本」與「依從成本」均較低，但競標制讓業者的「資訊成本」提高。是以本文建議，政府若採用「評審制」發照，應注意公平性的維持；而若採用「競標制」發照，則應加重競標前評審的程序，方可降低發照之後的監督成本。

In many cases of telecommunications deregulation, license issue is often conducted in two patterns: “Beauty Contest” or “Auction”, which were both put to use in Taiwan. In essence, the administration of Taiwan tends to appreciate the notion of telecommunications deregulation; however, a thorough evaluation on the process and effects of two license issuing methods is still to be needed. Accordingly, this study is aimed to provide an analysis on the two license issuing methods and how they affect the transaction cost between the license governors and the telecommunication service suppliers. Based on the transaction cost approach in Williamson’s model, this study first determines the three types of the transaction cost involved in the license issuing process. The three types, which are “Negotiation Cost”, “Information Cost”, “Supervision-Compliance Cost”, will then be discussed in the license issuing cases of Japan, UK, and Taiwan. The results indicate that the administration tend to bear a higher “Negotiation Cost” and “Information Cost”, while having a lower “Supervision Cost” in “Beauty Contest” than in “Auction”. Service suppliers pay lower “Information Cost” and “Compliance Cost” in “Beauty Contest”. We believe, in this paper, impartiality is crucial in “Beauty Contest” method. If license issue is conducted in “Auction” method, a proper screening on the service suppliers before the bid could spare a great amount of “Supervision Cost” that may come along.