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題名 無線廣播電視執照核發制度之研究--兼論商業執照競標之問題
A Study of Broadcast and Television Licensing: Also Comment on Commercial Station Licenses Auction
作者 林孟芃
Lin, Meng-peng
貢獻者 莊國榮<br>江耀國<br>陳炳宏
林孟芃
Lin, Meng-peng
關鍵詞 解除管制
數位匯流
無線廣電執照
拍賣法
公益義務
deregulation
digital convergence
broadcast licensing
auction
public interest obligation
日期 2005
上傳時間 18-Sep-2009 15:46:58 (UTC+8)
摘要 主管機關於發照機制之選擇及其執照核發決定，不僅是滲透到無線廣電產業管制架構的每一處縫隙，也反映出社會價值之優先序位。
從上個世紀以來，解除管制、數位科技與匯流現象高度衝擊了過去以執照為核心的無線廣電管制體系，也引發了一波管制革新之需求。形式上，無線廣電服務與電台執照是一系列權利義務與一套法律程序之化身，但從其功能面來看，執照之核發寓含至少有「註冊登記，分類管理」、「資源分配」、「限制市場參進與競爭」、「費用徵納」及「行為監管」等多元之目標功能。在英美，無線廣電執照之核發反映出該國無線廣電體系之社會角色定位，也反應出不同廣電體系下執照釋出及其頻率核配方式與結果之影響；管制革新也同樣令其重新認知了傳統執照制度中課予廣電業者公益義務之價格問題。
拍賣法在廣電頻譜及經營特許之應用上，除有先例可循外，亦被認為將可以矯正過去傳統以命令與控制模式支配下之執照核發制度之缺失，並將因此增加頻譜使用效率、提升全體福祉。本文因此透過英美等國之制度規範與經驗之分析，來檢驗此一說法。期待藉由瞭解拍賣法及其相關特殊背景下運作之優劣得失，及晚近崛起之相關替選方案，能提供未來政策制訂者在商業廣電執照管理之改革議題上有更豐富的視野。
儘管拍賣法在無線通訊領域應用上，現階段看來有相當誘人的成果，但本文認為，無線廣電事業有其特殊性，傳統頻率指配結合營業特許之執照體系，在使用拍賣法上，將可能產生近用、市場競爭、使用效率、內容多元等目標上無一討好之結果。再者，要達成自由市場或市場模式追求之效率目標，也並非單純使用拍賣法即可；相關配套措施之施行，同樣不可或缺。再者，我國無線廣電體制與英美更有不同，因此如何避免出現主管機關缺乏落實政策目標之能力，至關重要。
目前我國無線商業廣電執照核發制度之問題，可說在頻譜與內容管制雙重目標間迷失；問題焦點並不在於拍賣或審議制的二選一習題上，而應是致力於明確化分配標準、公開透明的競爭程序。此外，在引入市場機制於執照制度、期能促進效率與效能之同時，如何平衡執照管理中的私益與公益問題，仍是數位匯流時代無線廣電執照管理議題之核心。
The authority`s choice of a licensing mechanism and decisions thereof not only permeate nearly the entire regulatory fabric of our broadcast industries, but reflect our society`s priorities. Licensing, nominally, is a mutual promise by the legal procedure; moreover, it is also about the registration, limited competition, distribution of resourses, charges, and the code of conduct.
Since last century, broadcast laws and regulations have been bombarded with deregulation, digitization, and convergence, and that is conglomerated to push the reform of broadcast licensing. Simultaneously, the communications revolution, like U.K. or U.S., has thrown into question the value of imposing public interest obligations on radio and television broadcasters.
Broadcast licensing seems to be so daunting that some people anoint a few constituencies with very pressing appeals, give them special leverage, and throw everything else back on the market. The auction apologists would argue that the government should set clear and definite standards and tough performance requirements to ensure that good systems and service will result, whoever is the highest bidder. In a pure auction era, where dollars are equated with public worth and maximizing dollars will be the most important criterion, there will be strong pressure to also base allocation and allotment decisions on this standard.
The merit of auctions in wireless communications licensing may be conspicuous, but the broadcast industry is unique and more complicated so that the change of a licensing mechanism, from the marketplace approach, could be made that a revised public interest standard and obligations failed to address the fundamental challenge--to reassess the power of the regulator when implementing the public interest obligations. Auctions of radio spectrum or broadcasting concession, in other words, will generate their own serious problems that should not be underestimated or denied.
On broadcast licensing of Taiwan, auctions will not be the life buoy to predicaments of broadcast industries; on the contrary, a top priority is to enhance the clearness and definition, transparency, and fair competition, whether the authority prefers imitating an auction to innovating the traditional selection procedure, beauty contest, through a more competitive approach or not. Besides, we shall inspecting the key point of whether or not competition and the public interest are compatible in the ongoing dialectic still, continuing to struggle toward a balance between private initiative and public oversight.
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描述 碩士
國立政治大學
公共行政研究所
91256005
94
資料來源 http://thesis.lib.nccu.edu.tw/record/#G0912560051
資料類型 thesis
dc.contributor.advisor 莊國榮<br>江耀國<br>陳炳宏zh_TW
dc.contributor.author (Authors) 林孟芃zh_TW
dc.contributor.author (Authors) Lin, Meng-pengen_US
dc.creator (作者) 林孟芃zh_TW
dc.creator (作者) Lin, Meng-pengen_US
dc.date (日期) 2005en_US
dc.date.accessioned 18-Sep-2009 15:46:58 (UTC+8)-
dc.date.available 18-Sep-2009 15:46:58 (UTC+8)-
dc.date.issued (上傳時間) 18-Sep-2009 15:46:58 (UTC+8)-
dc.identifier (Other Identifiers) G0912560051en_US
dc.identifier.uri (URI) https://nccur.lib.nccu.edu.tw/handle/140.119/35699-
dc.description (描述) 碩士zh_TW
dc.description (描述) 國立政治大學zh_TW
dc.description (描述) 公共行政研究所zh_TW
dc.description (描述) 91256005zh_TW
dc.description (描述) 94zh_TW
dc.description.abstract (摘要) 主管機關於發照機制之選擇及其執照核發決定，不僅是滲透到無線廣電產業管制架構的每一處縫隙，也反映出社會價值之優先序位。
從上個世紀以來，解除管制、數位科技與匯流現象高度衝擊了過去以執照為核心的無線廣電管制體系，也引發了一波管制革新之需求。形式上，無線廣電服務與電台執照是一系列權利義務與一套法律程序之化身，但從其功能面來看，執照之核發寓含至少有「註冊登記，分類管理」、「資源分配」、「限制市場參進與競爭」、「費用徵納」及「行為監管」等多元之目標功能。在英美，無線廣電執照之核發反映出該國無線廣電體系之社會角色定位，也反應出不同廣電體系下執照釋出及其頻率核配方式與結果之影響；管制革新也同樣令其重新認知了傳統執照制度中課予廣電業者公益義務之價格問題。
拍賣法在廣電頻譜及經營特許之應用上，除有先例可循外，亦被認為將可以矯正過去傳統以命令與控制模式支配下之執照核發制度之缺失，並將因此增加頻譜使用效率、提升全體福祉。本文因此透過英美等國之制度規範與經驗之分析，來檢驗此一說法。期待藉由瞭解拍賣法及其相關特殊背景下運作之優劣得失，及晚近崛起之相關替選方案，能提供未來政策制訂者在商業廣電執照管理之改革議題上有更豐富的視野。
儘管拍賣法在無線通訊領域應用上，現階段看來有相當誘人的成果，但本文認為，無線廣電事業有其特殊性，傳統頻率指配結合營業特許之執照體系，在使用拍賣法上，將可能產生近用、市場競爭、使用效率、內容多元等目標上無一討好之結果。再者，要達成自由市場或市場模式追求之效率目標，也並非單純使用拍賣法即可；相關配套措施之施行，同樣不可或缺。再者，我國無線廣電體制與英美更有不同，因此如何避免出現主管機關缺乏落實政策目標之能力，至關重要。
目前我國無線商業廣電執照核發制度之問題，可說在頻譜與內容管制雙重目標間迷失；問題焦點並不在於拍賣或審議制的二選一習題上，而應是致力於明確化分配標準、公開透明的競爭程序。此外，在引入市場機制於執照制度、期能促進效率與效能之同時，如何平衡執照管理中的私益與公益問題，仍是數位匯流時代無線廣電執照管理議題之核心。		zh_TW
dc.description.abstract (摘要) The authority`s choice of a licensing mechanism and decisions thereof not only permeate nearly the entire regulatory fabric of our broadcast industries, but reflect our society`s priorities. Licensing, nominally, is a mutual promise by the legal procedure; moreover, it is also about the registration, limited competition, distribution of resourses, charges, and the code of conduct.
Since last century, broadcast laws and regulations have been bombarded with deregulation, digitization, and convergence, and that is conglomerated to push the reform of broadcast licensing. Simultaneously, the communications revolution, like U.K. or U.S., has thrown into question the value of imposing public interest obligations on radio and television broadcasters.
Broadcast licensing seems to be so daunting that some people anoint a few constituencies with very pressing appeals, give them special leverage, and throw everything else back on the market. The auction apologists would argue that the government should set clear and definite standards and tough performance requirements to ensure that good systems and service will result, whoever is the highest bidder. In a pure auction era, where dollars are equated with public worth and maximizing dollars will be the most important criterion, there will be strong pressure to also base allocation and allotment decisions on this standard.
The merit of auctions in wireless communications licensing may be conspicuous, but the broadcast industry is unique and more complicated so that the change of a licensing mechanism, from the marketplace approach, could be made that a revised public interest standard and obligations failed to address the fundamental challenge--to reassess the power of the regulator when implementing the public interest obligations. Auctions of radio spectrum or broadcasting concession, in other words, will generate their own serious problems that should not be underestimated or denied.
On broadcast licensing of Taiwan, auctions will not be the life buoy to predicaments of broadcast industries; on the contrary, a top priority is to enhance the clearness and definition, transparency, and fair competition, whether the authority prefers imitating an auction to innovating the traditional selection procedure, beauty contest, through a more competitive approach or not. Besides, we shall inspecting the key point of whether or not competition and the public interest are compatible in the ongoing dialectic still, continuing to struggle toward a balance between private initiative and public oversight.		en_US
dc.description.tableofcontents 表目錄 iv
圖目錄 v
摘要 1
第一章 緒論 5
第一節　研究背景 5
第二節　研究動機及研究問題 8
壹、研究動機與目的 8
貳、研究問題與架構 12
第三節　研究方法及限制 14
壹、研究途徑與方法 15
貳、研究範圍與限制 17
參、相關用語說明 18
第二章 管制無線廣電執照核發之理論與變遷 19
第一節　特許管制之經濟、法律與行政議題 19
壹、無線廣電特許管制之經濟分析 19
貳、無線廣電執照管制之法律分析 23
參、無線廣電特許管制之行政管理課題 26
第二節 無線廣電市場參進管制之特質與正當性 31
壹、辯正國內對於無線廣電管制正當性之誤解 32
貳、頻譜稀缺性之爭議 37
參、公共服務概念及公益理論 39
第三節　廣電頻率與營業執照分離之治理思維 45
第四節 廣電頻率分配模式與制度選擇 47
壹、命令與控制模式 48
貳、自由市場模式 50
參、共有共用模式 52
肆、商用廣電頻率初始分配方法之比較 55
第三章 我國無線廣電執照核發制度之演變與檢討 65
第一節 我國無線廣電執照核發制度之變遷 65
壹、一九九三年以前之高度管制時期 66
貳、一九九三年至二００一年的頻道開放時期 69
參、二００二年以來迄今 71
第二節 我國現行無線廣電執照核發制度 73
壹、無線廣電執照管制目標 73
貳、廣電執照發放標準 75
參、我國無線廣電執照核發之程序 79
第三節　現行無線廣電執照制度規範與執行面之檢討 81
壹、目標不清 82
貳、不分電臺特性之執照核發 84
參、審議制度的適法性危機 87
肆、政治力干預 92
第四節　未來發展方向 94
壹、廣電法修正草案對於執照制度之改革芻議 94
貳、商業廣電頻譜競標之提議 95
參、無線廣電頻譜之重整與數位化議題 98
第四章 英美無線廣電執照競標經驗之分析 104
第一節　美國 106
壹、背景：美國發照制度與公益標準之爭議 106
貳、比較聽証制的衰退與拍賣法的崛起 110
參、拍賣法在美國無線商業廣電執照領域之應用與評析 117
第二節　歐盟 127
壹、新通訊傳播與視聽政策之架構與內涵 128
貳、綜合分析 134
第三節　英國 137
壹、背景：英國無線廣電體制變遷與公共服務原則 137
貳、執照核發及其頻譜管理制度現況 141
參、綜合評析 145
第五章 無線商業廣電執照管制之變革方向 150
第一節　無線商業廣電服務釋照策略選擇之考量因素 150
壹、廣電領域解除管制之迷思 150
貳、傳輸與內容分離之廣電執照核發 155
參、主管機關管制能力之維持—行政裁量權 159
肆、頻段特性與頻率用途之差異性 161
第二節　廣電頻譜核配與管理之備選方案 163
壹、總量管制法 164
貳、行政誘因訂價 167
第六章 結論與建議 169
參考文獻 174
中文文獻 174
英文文獻 178
附錄 188
附錄一 行政院新聞局廣播頻率核配統計一覽表 188
附錄二 我國目前經營電視事業之必要執照及其費用結構 191
附錄三 ITU關於無線電頻譜之頻段區分與用途 192
附錄四 美國廣播電視業者公共利益責任負擔簡表 193		zh_TW
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dc.language.iso en_US-
dc.source.uri (資料來源) http://thesis.lib.nccu.edu.tw/record/#G0912560051en_US
dc.subject (關鍵詞) 解除管制zh_TW
dc.subject (關鍵詞) 數位匯流zh_TW
dc.subject (關鍵詞) 無線廣電執照zh_TW
dc.subject (關鍵詞) 拍賣法zh_TW
dc.subject (關鍵詞) 公益義務zh_TW
dc.subject (關鍵詞) deregulationen_US
dc.subject (關鍵詞) digital convergenceen_US
dc.subject (關鍵詞) broadcast licensingen_US
dc.subject (關鍵詞) auctionen_US
dc.subject (關鍵詞) public interest obligationen_US
dc.title (題名) 無線廣播電視執照核發制度之研究--兼論商業執照競標之問題zh_TW
dc.title (題名) A Study of Broadcast and Television Licensing: Also Comment on Commercial Station Licenses Auctionen_US
dc.type (資料類型) thesisen
dc.relation.reference (參考文獻) 中文文獻zh_TW
dc.relation.reference (參考文獻) 尤英夫（1999），傳播法之檢討，資料來源：http://taup.yam.org.tw/announce/9911/docs/28.html （最後瀏覽日期：Dec. 1, 2005）zh_TW
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