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政府收费公路融资改革:告别银行贷 发行“公路债”

2017-07-13 18:27:20   新华社

“堵后门”确保偿还能力与发债规模相匹配

我国收费公路偿债资金压力与公路建设资金缺口相互叠加,一方面是公路的建设需求,另一方面是债务的阶段性、局部性风险问题不容忽视。发行收费公路政府专项债券,会给公路建设带来什么影响?

试行办法明确,收费公路专项债券资金专项用于政府收费公路项目建设,优先用于国家高速公路项目建设,重点支持“一带一路”、京津冀协同发展、长江经济带三大战略规划的政府收费公路项目建设。

“这将有效遏制一些地方的盲目建设。”王燕弓表示,与以前政府还贷公路“修多少路,贷多少款”的方式相比,未来政府收费公路是按照“发多少债,修多少路”的方式发展,两者在规模控制方面有着本质的区别。后者可以通过对不同地区、不同时间、不同项目发行政府专项债券额度的调控,有效调整收费公路建设规模和建设节奏,确保政府收费公路偿还能力与发债规模相匹配。

根据试行办法,收费公路专项债券资金不得用于经营性收费公路,也不得用于非收费公路项目建设,不得用于经常性支出和公路养护支出,也不得用于偿还存量债务。债券收支纳入政府性基金预算管理,接受人大监督;收费公路专项债券按照市场化原则发行,期限、结构明确合理,信息公开透明,便于市场和公众监督。

“有利于降低偏高的融资成本、合理控制债务规模、有效防范债务风险,还可以大幅降低收费公路投资门槛,将动辄几十、上百亿的巨额投资化整为零变为专项债券,吸引包括中小投资者在内的更多社会资本投资公路基础设施建设。”王燕弓说,通过政府增信作用,给予社会投资者稳定预期和公开、透明、合理的投资回报,可以避免社会资本直接投资建设运营收费公路项目存在的经营风险。

算好收费公路发展细账

“和收费公路总体债务相比,发行债券只是杯水车薪。”杨建平说,发行收费公路专项债券,是针对未来要修建的公路,属于增量部分,对于已经建成的政府还贷公路,也就是存量部分,并不适用。收费公路背后的主要支出是刚性的,债依然要还,路依然要养。

关于收费公路,群众希望降低收费标准或减免通行费。“一旦收费标准突破连利息都无法支付的警戒线,需要借新还息时,收费公路债务雪球将会越滚越大,失去控制。”国家行政学院交通运输管理改革研究课题组组长王伟说,在收费公路整体收不抵支、收支缺口逐年成倍扩大的情况下,减免通行费的实质是在降低收费公路的还本付息能力,意味着偿债能力的下降和偿债进度的放缓。

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