公用企业信息公开制度研究

　　摘要

　　自2008年《中华人民共和国政府信息公开条例》实施以来，我国政府信息公开正在不断完善和进步。随着行政分权和行政任务私法化的出现，附则中的第三十七条逐渐成为讨论的焦点。实践中也发生了公民诉水公司、电力公司等各种以公用企业为被告的案件，在诉讼中产生了不少问题，如法律法规依据不足，缺乏程序保障和救济等问题，所以急需法律的进一步完善。

　　本文首先从几则公民诉公用企业的案例入手，分析案件的争议焦点，然后围绕这些主要问题分四部分进行探讨：

　　第一部分主要讨论的是公用企业作为信息公开主体的认定标准问题。怎样的企业可以算作公用企业可以从不同的角度来考量和分析，本文主要阐述了立法明确列举标准、公共职能标准、政府控制标准和信息属性标准四种衡量的标准，并对四种不同的标准存在的优缺点进行了评价。得出的基本结论是：在评判哪些公用企业需要承担信息公开义务时，任何单一标准都是不够的，只有将形式标准与实质标准相结合，才能在个案中更好地判定出承担信息公开义务的主体。

　　第二部分主要阐释公用企业信息公幵的范围。首先将公用企业可能掌握的信息进行分类，分为公用企业需要上报主管机关的信息和其他公用企业制作或者获取的信息。其次，试图寻找公用企业信息公幵的强度要求。再次，因公用企业自身所具有营利性质，所以必须探讨信息公开与其商业秘密保护的关系，从而分清公开与保密的界限。最后，分析司法机关在审查商业秘密问题时可能遇到的问题及解决办法。

　　第三部分分析了公用企业信息公开的程序问题。首先，同样的信息可能存在于公用企业和其主管行政机关手中，这就产生了双重公开主体问题，根据主动公开与依申请公开的不同又会产生不同的公开程序，同时还存在其他信息公开的方法。其次是申请公用企业信息公开的申请人的资格问题。最后，如果申请人与要求公开的信息之间不存在直接的关系的话就会产生公益诉讼问题。

　　第四部分主要论述我国现行对于公用企业信息公开的立法及适用。本文将用表格的方式呈现我国公用企业信息公开的现行法律、法规，并进行适用分析，从而试图探索未来公用企业信息公开的立法模式。最后，本文总结得出公用企业信息公开任重而道远，我们要为公用企业信息公开工作的顺利展幵做好思想上的准备，并以一系列的配套搐施为其保驾护航。

　　关键词：公用企业，信息公开，公开范围，公开程序，法律适用

　　ABSTRACT

　　Since the implementation of “Regulations on Disclosure ofGovernment Information of the People's Republic of China” in 2008,thedisclosure of government information has been improved continually.

　　With the decentralization of executive powers and emergence of privatetrend of administrative tasks, article 37 has gradually become the focus ofdiscussion. In fact, some cases with public enterprises as the defendanthave appeared, such as citizens' complaint of water companies, powercompanies. A number of problems have emerged in the litigation, such asthe lack of legal basis and procedural safeguards, problems of legalremedies and some other issues. So the further improvement of law is inthe need.

　　In this paper, I will firstly list some cases between citizens andpublic enterprises. Then, I will analyze the controversy of these cases. Inthe following, I will discuss these key issues in four parts:

　　The first part focuses on the standards of the identification of publicenterprises as the subject of the disclosure of information. The problemthat what kind of business can be counted as public enterprise can beconsidered from different perspectives. This paper concludes fourstandards: the standard of legislation expressly enumeration, the standardof public functions, the standard of government control standards andstandard of information property. In the same time, the four differentstandards all have its advantages and disadvantages. The basic conclusionof this part is that in judging which companies need to undertake thedisclosure obligations of public information, any single standard is notenough. We should combine the formal standards and substantivestandards in individual cases in order to determine the subjects that havethe disclosure obligations of information.

　　The second part illustrates the scope of disclosure of the publicenterprises' information. Firstly, the information of the public enterprisesmay be divided into two parts. One part is the information that publicenterprises need to report to the authorities. The other part is theinformation that the public enterprises produce or obtain. Secondly, this,paper will try to find the intensity for public enterprises to determine thescope of the disclosure of information. Thirdly, because the publicenterprises have the nature of pursuing profit, we must study therelationship between the disclosure of information and protect of tradesecrets. Finally, there will be some analysis of the problems and solutionsthat appeared injudicial reviewing the issue of trade secrets.

　　In the third part, I analyze the procedures of disclosure of publicenterprises' Information. Firstly, the same information may exist in publicenterprises and their corresponding administrative authority, whichresulted in a problem of double open subjects. There will be differentprocedures between initiative disclosure and disclosure according toapplication. Simultaneously, other disclosure methods also exist.

　　Secondly, there is a problem about the qualification of the applicant whoapplies for disclosure of information of public enterprises. Finally, if thereis no direct relationship between the applicant and the informationrequired to be disclosed, the public interest litigation issues will emerge.

　　The fourth part focuses on our current regulations on the disclosureof information of public enterprises and the application of them. Thispaper will present a form of some current laws and regulations on thedisclosure of information of public enterprises. Then I will analyze theapplication of these laws and regulations. Then I attempt to explore thefuture legislation mode of the disclosure of information of publicenterprises.

　　Finally, this paper will show that there are many difficulties for thedisclosure of information of public enterprises, but we have to makemental preparations for the disclosure of public enterprises and make itbetter with a series of supporting measures.

　　Key Words: Public enterprises, disclosure of information, the scopeof disclosure of information, disclosure procedures, application of laws
 

　　目录

　　摘要

　　ABSTRACT

　　目录

　　引言：问题的提出

　　第一章公用企业作为信息公开主体的认定标准

　　一、立法明确列举标准

　　二、公共职能标准

　　三、政府控制标准

　　四、信息属性标准

　　五、对不同认定标准的评价

　　第二章公用企业信息公开的范围

　　一、公用企业所拥有的信息的分类

　　（一）公用企业需要上报主管机关的信息

　　（二）其他公用企业制作或者获取的信息

　　二、确定公用企业信息公开的强度

　　三、信息公开与商业秘密保护

　　（一）公用企业商业秘密的界定

　　（二）应当公开的信息

　　（三）建立商业秘密审查机制

　　（四）分割性原则旳使用

　　第三章公用企业信息公开的程序

　　一、两种传统的信息公开方式所产生的双重公开主体问题

　　（一）主动公开

　　（二）依申请公开

　　二、其他信息公开的方法

　　（-）通过签订合同促进信息公开

　　（二）通过消费者监督委员会收集和公开信息

　　（三）其他信息公开方法的地位

　　三、对公用企业信息公开的司法监督

　　（一）我国有关公益行政诉讼的法律规定

　　（二）公益诉讼对公用企业信息公开的监督作用

　　第四章公用企业信息公开的立法与法律适用

　　一、公用企业信息公开的现行立法

　　二、对现行立法的适用分析

　　（-）“参照适用”的含义

　　（二）各领域具体办法的适用

　　三、对于公用企业信息公开立法模式的思考

　　结语

　　参考文献

　　致谢