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政府与社会资本合作模式的创新与超越(大家手笔)

2017-08-22 05:21:36   中国青年网

政府与社会资本合作模式(PPP)是政府与社会携手开展基础设施建设、提供公共服务的一种治理创新。欧美的政府与社会资本合作模式主要有两种:一种是BOT(建造—运营—移交)模式,引入私人资本建设基础设施、提供公共服务,由消费者支付费用,解决政府资金短缺问题;另一种是PFI(私人融资计划)模式,政府招标私人资本建设基础设施、提供公共服务,由政府用公共支出买单,重在提高政府支出效率。近年来,政府与社会资本合作模式在我国得到广泛应用。但随着其深入发展,外来理论已经越来越难以解释和指导我国的生动实践,西方传统模式在我国出现了水土不服。为解决这一问题,我国对政府与社会资本合作模式进行了复合创新,实现了对西方模式的超越。

实现了实施对象的超越。基础设施以及相关公共服务可分为三类:一是经济型,如道路交通、市政工程等;二是社会型,如养老、教育、文化等;三是环境型,如污染治理、生态建设等。西方的政府与社会资本合作模式通常以单个项目为主:BOT模式多见于消费者付费的经济型项目,PFI模式多见于政府付费或补贴的社会型和环境型项目。与之相比,我国的政府与社会资本合作通常是涉及多个领域的综合项目,如特色小镇建设就是经济型项目和社会型项目的结合。即使是以某一方面为主导的项目,也常与其他基础设施和公共服务捆绑起来开展。例如,北京一些地铁站在建设中将传统的交通建设与棚户区改造有机结合,既优化了周边环境,又实现了轨道交通、机动车交通和人行交通的合理配置。我国的政府与社会资本合作模式的优点在于可以避免社会资本过多关注经济型项目、忽视社会型和环境型项目;相关的项目评估也已逐步超越单纯的经济考量,要求充分考虑社会影响和环境影响,体现了以人民为中心的发展思想。

实现了实施主体的超越。在西方模式中,社会资本通常是以单一主体的形式与政府开展合作。而我国参与合作的社会资本常以联合体形式出现。其中,有的是跨行业跨部门联合,比如园区项目通常包含市政建设、环境保护、文教旅游等多个部门;有的是供应链上下游联合,比如一些有较强市场竞争力的项目常常包括金融、规划、建设、运营等企业;也有的是不同所有制之间的联合。这种采用联合体形式、组建大PPP项目公司的方式,具有重要的治理创新意义。经过正确引导,将可能发展出介于政府和市场之间的、具有创新意义的混合经济组织,为经济社会可持续发展注入更多活力。

正在实现实施过程的超越。政府与社会资本合作项目的最终绩效不仅体现在融资和建设环节,而且体现在运营维护环节。相应地,社会资本参与项目的长期竞争力更多来自于其在运营维护方面的管理能力和技术水平。当前,我国参与合作实践的社会资本大多是建造或制造企业,建设施工能力强,但运营维护能力较弱。随着新型城镇化的深入推进,未来基础设施建设“硬件”项目将逐步减少,服务运营“软件”项目将成为主导。这对许多以建设施工见长的企业提出了加强服务运营能力的转型要求。可以预见,经过PPP项目的磨炼与考验,这些中国企业将会实现建造业运营化、制造业服务化转型,实现由“中国建造”“中国制造”向“中国运营”“中国服务”拓展,进而形成新的国际竞争力。

(作者为同济大学可持续发展与管理研究所所长、教授)

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