從經濟法學之觀點看我國有線電視產業管制對策 —以頻道規劃與載送為中心

Abstract

近年我國有線電視產業紛爭不斷，跨區系統商、新進系統商與既有系統商之間競爭十分激烈，同時在中華電信MOD與各新興收視平台加入後，我國收視市場更是進入戰國時代，除就商業促銷大戰外，就法律爭議而言，相關檢舉與訴訟更是時有所聞。為此，不論是通傳會或是公平會，均對此些爭議採取程度不一的介入，而身為產業主管機關的通傳會更是在近年積極推動諸多管制對策與修法草案，以期解決相關產業紛爭。

然而，有關有線電視產業爭議面向甚多，本文選擇聚焦於頻道規劃與載送，除重新審視既有管制政策外，本文挑選了具有代表性的三個案件，分別是壹電視移頻案、MG差別待遇案、民視斷訊案，透過相關案件的爭訟梳理相關管制之不足，並特別針對競爭管制與產業管制的調和進行分析與說明。最終，本文除考量既有案件所面臨的問題外，更參酌美國和加拿大的相關法制以及歷來我國相關管制對策擬定，提出有關本文之建議。

就頻道規劃之部分，本文建議採取分階段放寬管制。短期政策為在兩年內以先推動3位數頻道編碼，並採取前100台不變，3位數編碼自主規劃之雙軌式載送。中長期政策則以強化多元選台，並將排頻權全面交還系統商為主。 就頻道載送之部分，本文建議採取證券交易法妨訴條款之設計，避免通傳會過度介入商業談判。同時，為避免具有整合關係的事業，對不具整合關係之事業採取聯合行為或差別待遇等，本文除贊成應破除既有過於偏重於形式上差別對待的競爭管制，而正視實質上差別對待與差別影響，也認為應審慎評估實質控制、相關市場與市場力量等因素，並從舉證責任等規定上進行強化行為管制，以避免去管制化後具優勢市場地位事業濫用其市場力量。

針對消費者權益保障，本文也認為應避免錯誤地將收視習慣作為消費者權益，倘若為實踐消費者保護之目的，亦應透過改善定型化契約、強化消費者程序參與等方式，減少對於消費者之衝擊。

最後，本文認為基於數位匯流下，有線電視與其他傳輸技術平台之競爭愈發激烈，通傳會應放棄勤管嚴教的管制思維，應逐步廢除既有嚴格的事前管制措施，而改以事後的行為管制為主，並且以鼓勵創新、競爭為主要管制對策方針。同時，公平會亦應克盡己責，透過競爭管制與產業管制之互補，減少政府失靈之問題，並且應積極透過與通傳會之協調機制，促進整體產業競爭秩序正常化之建立。

In recent years, there have been constant disputes in Taiwan's Cable TV industry. The competition among cross-regional system providers, new system providers and existing system providers is fierce. At the same time, after Chunghwa Telecom MOD and other viewing platforms have joined the competition, the Taiwan viewing market has entered the Warring States Period.

As a result, many legal disputes have arisen, and both NCC and FTC have made many administrative sanctions on these disputes. In recent years, NCC has aslo actively promoted many regulatory countermeasures and draft amendments in order to resolve related industrial disputes.

Because there are so many controversies about the Cable TV industry, this article chooses to focus on “Channel Plan and Carriage”. This article not only examines the existing regulatory policies, but also selects three representative cases, namely, the “Next TV case”, “the MG differential treatment case”, and “FTV case”. By sorting out the deficiencies of relevant regulations in the three cases, and referring to the relevant regulations of the United States and Canada. This article makes the following recommendations.

For the Channel Plan, this article proposes a phased deregulation. The short-term policy is to promote 3-digit channel coding within two years and adopt dual-track carriage. The medium and long-term policy is to strengthen the multi-channel selections and return the editorial rights to the system providers.

For the Channel Carriage, this article proposes to adopt the arbitration provisions of the Securities and Exchange Act to avoid the excessive interference of NCC in commercial negotiations. At the same time, this article advocates that “substantially disparate treatment” and “disparate impact” should be paid attention to, and factors such as substantive control, relevant market and market power should also be carefully evaluated. Then, strengthen behavior control through provisions such as the burden of proof to avoid abusing the market power of enterprises with a dominant market position after deregulation.

Finally, under the digital convergence, the competition between Cable TV and other transmission technology platforms is becoming more and more fierce. The NCC should abandon strict control, gradually abolish the existing ex-ante control measures, and focus on ex-post behavior control instead, and encourage innovation, competition as the main industry regulation policy. FTC should also be responsible for reducing government failure and normalizing competition in the Cable TV industry.