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重拳!债务高风险地区将被要求实施财政重整

2016-11-14 18:46:47   新华网

财政部有关负责人介绍,财政重整指的是债务高风险地区在保障必要的基本民生支出和政府有效运转支出基础上,依法履行相关程序,通过实施一系列增收、节支、资产处置等短期和中长期措施安排,使债务规模和偿债能力相一致,恢复财政收支平衡状态。对债务高风险地区实施财政重整,是地方政府债务应急处置的重要内容,世界各国通常会采用类似做法。

以美国为例,2011年,俄亥俄州曼斯菲尔德市地方政府进入财政应急状态并开始实施财政复苏计划。主要手段包括将个人所得税提高0.25%、减少公务员节假日工资及带薪病假、减少公车使用、处置森林资产等。1994年,加利福尼亚州奥兰治县也采取过一系列的财政重整措施,包括裁减2000余名公务人员、压缩固定资产投资和削减公共服务项目等。8个月后,奥兰治县政府债务应急处置取得成功,逐步恢复正常运行。

此次国办预案明确规定了“中国版”地方政府财政重整计划的内容。

启动财政重整计划后,为偿还债务本息,地方政府首先要加大清缴欠税欠费力度等,拓宽财源渠道。这并不是说要新增税、乱收费,而是要确保应收尽收。除法律、行政法规和国务院规定的财税优惠政策之外,地方政府可以暂停其他财税优惠政策,危机解除后再恢复。

“开源”的同时,地方政府还要下大工夫“节流”。

预案规定,财政重整期内,除必要的基本民生政策支出和政府有效运转支出外,视债务风险等级,本级政府其他财政支出应保持“零增长”或者大力压减。具体涉及以下几个方面:

一是“三不一退”,即不得新批政府投资计划,不得新上政府投资项目,不得设立各类需要政府出资的投资基金,已经设立的应当制定分年退出计划并严格落实;

二是“削减经费”,包括实行公务出国(境)、培训、公务接待等项目“零支出”,大幅砍掉政府咨询、差旅、劳务等各项支出;

三是“缩编裁员”,即机关事业单位暂停新增人员,必要时采取核减机构编制、人员等措施;

四是“清理补贴”,即暂停地方自行出台的机关事业单位各项补贴政策,清理各类对企事业单位的补助补贴。

另外,地方政府还得暂停土地出让收入各项政策性计提,土地出让收入扣除成本性支出后应全部用于还债。

如果以上措施加起来仍然“填不了坑”,地方政府可以申请省级政府临时救助,手段包括代偿部分政府债务、减免部分专项转移支付配套资金等。但是,财政重整计划结束后,省级政府可以决定是否收回相关资金。根据预案,财政重整“工具栏”还包括处置政府资产。地方政府指定机构统一接管政府及其部门拥有的各类经营性资产、行政事业单位资产、国有股权等,结合市场情况予以变现,多渠道筹集资金偿还债务。

此外,一旦启动财政重整计划,相关市县政府涉及财政总预算、部门预算、重点支出和重大投资项目、政府债务等事项,在依法报本级人民代表大会或者其常委会审查批准的同时,还必须报上级政府备案。上级政府对下级政府报送备案的预算调整方案要加强审核评估,认为有不当之处需要撤销批准预算的决议的,应当依法按程序提请本级人民代表大会常委会审议决定。相关市县政府还应当实施中期财政规划管理,严格做好与化解政府性债务风险政策措施的衔接。

责任编辑:李皓 CN002
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