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政府投资条例今年有望出台 将更多引入市场机制

2017-06-01 12:10:57   经济参考报

投融资体制改革将迎来更完善的法律制度保障。《经济参考报》记者日前获悉,根据国家发改委此前确定的2017年深化经济体制改革重点工作,今年将要出台政府投资条例。多位专家在接受记者采访时表示,每年数万亿规模的政府投资管理的法制化水平将随着条例的出台大大提升。具体内容方面,条例将强化全口径的政府投资计划管理,加强对政府投资的监督评价,并将更多地引入市场机制等。

国家发改委投资研究所体制政策室主任吴亚平告诉记者,政府投资条例将是一个“软硬结合”的条例。从“软”的方面来看,政府投资项目建设管理工作,将更多地引入市场机制,甚至很多工作可以直接交由市场主体承担,政府主要依法实施监管,并且提高政府投资服务水平;从“硬”的方面来看,将强化全口径的政府投资计划管理,加强对政府投资的监督评价。对整个投融资体制改革而言,采取多种措施加强政府投资管理,提高投资决策水平和提高投资效益是大的改革主线,同时要大力推进投融资机制创新,推广运用PPP(政府与社会资本合作)、产业基金等新的投融资模式。

据了解,政府投资立法进程已启动超过十年。

此前记者在采访相关专家时获悉,从大方向上看,政府投资审批有望向地方放权,如适当加大地方政府的投资管理权限,适当减少中央政府投资主管部门的管理权限,原则上是“谁投资、谁决策”。但因为政府投资范围难以确定,加上中央和地方的投资管理权限按项目限额、行业类别还是按所有制性质划分还存在分歧等一系列原因,条例的制定一度进程缓慢。

有专家告诉记者,政府投资分为四类:一是财政直接投资,如公益性事业;二是政府对国企的投资;三是资本金、股本为国有的国企再投资;四是地方政府为招商引资而进行的间接投资,如通过财政杠杆吸引社会投资。

政府投资的规模到底有多大?国家发改委宏观经济研究院原副院长马晓河在接受记者采访时表示,2016年全社会固定资产投资为60.6万亿,其中民间投资约占三分之二,其余都是国有投资。而在国有投资中,政府投资约占15%左右,总量有数万亿。

吴亚平表示,政府投资条例的出台,无疑将大大提升政府投资管理的法制化水平,这对优化政府的投资方向,促进政府投资科学决策,提高政府投资效率都具有重要的意义。

对于政府投资未来的方向,马晓河表示,“政府投资应该重视科技创新产业发展,尤其是发展实体经济所需要的关键性和基础性的领域,包括传统产业改造以及新兴产业成长等方面,国家应该支持与鼓励。”但马晓河同时也提醒,在投资过程中如何协调市场和政府的关系将是一大挑战。

对于政府投资目前面临的挑战,吴亚平说,“政府投资一直存在多头管理、分散管理和管理制度规则不统一的问题,缺乏统一的政府投资计划,从而分散了政府有限的财力,不利于集中力量办大事特别是‘补短板’。因此,如何通过有限的政府投资资金,调动社会资本投资传统的政府投资项目,是出台条例必须要关注的问题。”此外,政府的投资决策机制如何进一步完善,政府投资项目建设管理过程中如何更好地引入市场机制从而提高效率等具体问题,都亟待解决。

记者了解到,除了要出台政府投资条例外,在深化投融资体制改革方面,我国今年还出台了《企业投资项目核准和备案管理办法》,明确提出将精简前置审批、优化审批程序,对大部分企业投资项目实行备案管理。今年在一定领域、区域内先行试点企业投资项目承诺制,发挥规划政策对投资的规范引导作用,探索创新以政策性引导、企业信用承诺、监管有效约束为核心的管理模式。此外,由国务院法制办牵头的PPP立法也已经被列入2017年立法工作计划并作为重点工作,下一步将会加快推动相关条例出台。

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