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项目井喷乱象暗生监管趋严 解码PPP

2017-09-07 08:07:29   中国经济网

财政部PPP中心第7期季报显示,西部地区PPP模式需求更大,占据了PPP入库项目的半壁江山。从入库项目来看,截至6月末,西部入库项目占比53.6%,入库项目投资金额8.2万亿元,占总投资额的50%。“而且由于10%对应的是预算支出,而不是每年的现实支出,是一种软约束。而且PPP财政承受能力论证是针对具体的项目进行论证,这里面的可操作空间就很大。”李开孟说。

此外,PPP领域还存在明股实债、重建设轻运营、PPP范围泛化伪PPP项目、PPP项目优先级失控等问题。史耀斌在上述讲话中就提到PPP领域存在不规范的“四大问题”。他指出,一些地方政府为了吸引社会资本和金融机构快上、多上项目,通过BT、政府回购、承诺固定投资回报等明股实债方式,实施PPP项目。一些政府付费类项目,通过“工程可用性付费+少量运营绩效付费”方式,提前锁定政府大部分支出责任,实际上都是由政府兜底项目风险。此外,将房地产等纯商业化项目拿来包装成PPP,借助有关部门和金融机构对PPP的“绿色通道”,实现快速审批和融资。

“现有的PPP模式将注意力引导到如何参与融资及承揽施工任务方面,而不是关注专业运营。已经上马的PPP项目未来几年将面临严重的专业化运营问题,大量PPP项目违约事件或不断爆发。”李开孟说。

多措并举力促规范发展

针对PPP发展中存在的诸多问题,薛涛建议,项目前端发起的时候,应该设立更好的PPP项目筛选模式,相关部门应建立更好的协调机制。同时进一步加强信息公开,譬如政府支付情况公开,这样违约的情况会减少。而对一些已经出现问题的PPP项目可以进行紧急修复,譬如可用性付费必须捆绑。此外地方政府减少对PPP项目的依赖性,一些无法修复的项目甚至可以从PPP名单中剔除。

江西财经大学PPP研究中心副教授赖小东表示,应该引入独立第三方为PPP提供全周期监管模式,建立科学的绩效考核机制,为社会资本安全退出把关。

针对突破10%红线的问题,李开孟建议,政府要改掉目前流于形式的PPP项目财政承受能力论证,对那些必须由财政资金支出的PPP的领域,要严格财评,纳入政府中长期预算体系,形成硬约束,从根本上解决问题。而对于基于市场机构能够完成的PPP项目,应该通过价格收付制度的改革,深化投融资体制改革,建立基于市场化的回报机制的PPP项目。

薛涛认为,现在国内有些城市已开始编制投融资规划,明确未来中长期(5到10年)重大投资项目清单、投资规模、资金需求和政府债务规模等,设计城市资金信用、债务平衡和投融资为一体的实施方案,并特别对各领域PPP项目按照轻重缓急进行合理设计、有序安排。这种方法一方面解决地方规划落地、项目对接以及政府和市场衔接问题,另一方面可解决政府和社会资本之间的信用问题,促进双方伙伴关系得以建立并可持续。从与现有政策的结合来看,也可与国家提出的建立中长期财政规划和预算框架进行衔接,对今后一段时期的政府财力作出理性的统筹、中长期的安排。

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