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把地方债风险关进笼子(建言)
2017-08-16 06:33:24 中国青年网
地方政府债务风险是当前重点领域的金融风险和财政风险。我们的调研发现,现在地方政府债务主要问题是,一些地区过度依赖负债投资的冲动非常强烈,地方债增长的速度过快,每年高达20%以上,大大超过GDP和财政增长速度,有些区县和西部地区债务余额增长甚至超过1倍。地方政府债务率高,一部分省市超过或逼近100%警戒线,偿债压力大。地方举债主体下移,基层市、县、乡负债比例普遍偏高。地方政府债务与土地财政、影子银行等其它风险点交织在一起,容易互相传导,相互感染。违法举债、变相举债仍有发生,“隐性债务”野蛮生长。
地方政府债务规模过大且增长过快,不仅会损害政府信用,还可能引起经济波动、引发系统性财政金融风险。必须积极稳妥防范化解累积的地方政府债务风险:
健全金融法治。严格执行新《中华人民共和国预算法》,严控地方政府债务增量,明确“谁负债,谁偿债”的偿债主体责任,终身问责,倒查责任。要把地方债治理纳入法治化轨道,科学界定政府举债的规模、结构、期限等内容。建立完善的官员考核体系和地方政府债务管理责任制,将债务率、偿债率、利息负担率等政府债务相关指标纳入政绩考核体系,责任落实到人、追究至终身,杜绝盲目举债建设“政绩工程”和“新官不理旧账”的现象。
强化政府负债和预算的硬约束,加强外部市场约束,健全风险监测预警和早期干预机制,防止地方政府债务风险积累和扩大。硬化预算约束是化解地方债务风险的关键。要完善地方政府债券“市场化”的发行和交易机制,开好“前门”,发挥律师、审计、信用评级等中介机构的作用,筑牢防控地方政府债务风险的“第二道”闸门。健全地方政府债务风险预警和应急处置机制,提高风险识别、评估、管理能力,掌握好“借、用、还”三个环节以及债务资金“谁来用、怎么用、用在哪”等问题,避免风险跨区域、跨领域蔓延。
理顺中央和地方的事权和财力关系,深化税收制度和土地制度改革,改变地方政府对举债和土地财政的过度依赖。事权不断下移与财权不断上收的结构性矛盾是地方政府负债不断扩张的根源。要解决地方政府事权大而财权小的问题,加快推进事权和支出责任相适应的财政体制改革,完善地方税制体系,构建“地方税+地方债”的筹资模式。要推进土地制度改革,可试点推行土地年租制,完善土地增值收益分配机制,化解可能因土地财政依赖症引发的债务风险转移。
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