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基建项目不该被国有资本垄断
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Topic: 基建项目不该被国有资本垄断 (Read 286 times)
tencentcoin
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基建项目不该被国有资本垄断
May 02, 2015, 02:18:28 AM
#1
我国基建项目向社会资本伸出了“橄榄枝”。近日召开的国务院常务会议提出,在能源、交通、水利、环保、市政等基础设施和公用事业领域开展特许经营,境内外法人或其他组织均可通过公开竞争,在一定期限和范围内参与投资、建设和运营基础设施和公用事业并获得收益。
当前我国经济下行的压力较大,基建投资就成为稳增长的重要“马车”。需要提及的是,随着近期新预算法、地方政府一般债券和专项债券发行管理文件的陆续下发,地方债务“自发自还”的外部约束得到加强,此前通过发行城投债或融资平台贷款为基础建设项目输血的路径受到封堵。与此同时,包括轨道公路交通、水热电气等在内的市政建设项目虽然投资期限较长,但最终都会形成相应规模的资产并产生稳定的经营性收入。恰因此,在地方基础项目建设中,政府部门与社会资本有着良好的合作基础,特许经营不仅可以缓解财政资金压力、有效提高资金使用效率,而且还可以引导社会资本进入公共事业领域、与国有资本之间展开有序合作与竞争。此次国务院常务会议进一步明确了鼓励社会资本参与公共事业的政策指向,为传统垄断领域卸下准入玻璃门夯实了基础。
事实上,以公私合营模式展开基础项目建设在海外已十分流行。近年来,美国各级政府普遍面临税源减少、医疗和失业救济等开支增加的财政压力,在公共建设中向社会资本寻求“助力”成为了一种常态。从1990年到2010年,美国私营部门在基础设施工程中投入的资金总量从不到3亿美元增至30亿美元,在纽约市肯尼迪国际机场更新和扩建项目、科罗拉多州丹佛市轻轨项目、华盛顿特区奥伊斯特小学翻修工程中均有社会资金参与其中。实践表明,相比较单纯的财政投资,公私合营更能够节约工程开支、减少项目风险。例如,政府部门修路聘请建筑工人时薪都在20美元左右,私营部门能在市场上找到时薪仅有12美元至15美元的建筑工人。由于设计、运营控制得当,美国公私合营的基础设施项目一般要比同类只由政府负责的项目节约资金7%到10%,最终使公共财政资源的使用效率大增。
值得一提的是,我国许多大城市政府此前已经开展了公私合营的诸多尝试。诸如,早在2003年北京市就发文明确在奥运基建中引入特许经营机制,在卢沟桥污水处理厂项目招标中,法国威力雅水务、马来西亚嘉里公用事业公司等组成的联合体成功取得了污水处理厂20年的专营权;而上海从2000年起也曾一度向社会资本开放高速公路建设等领域,并相应出台多项税收优惠举措。然而实践表明,政府与社会资本的有机融合并非易事。一方面,行政部门的权力监管滞后,以至于有形之手强势干预、暗箱操作事件难以根本杜绝,特许经营的试水之举难免为官商勾结所利用。这其中,轰动全国的上海“社保案”就是一个负面典型事件。另一方面,公私合营项目“只吸金、不放权”问题未能得到根治,许多社会资本在投资入股后无法获得相应待遇,在投资决策、施工建设、财务结算及人事任免等方面皆需听命于国有资本,这让已习惯在市场环境中搏杀的民企无所适从。对此,国务院此番发文对准入标准和经营行为提出了较为明确的规范要求,但相应的法律规制仍需得到强化,以彻底消除社会资本对公私合营的各种顾虑。从美国的经验看,相关法律法规应提高公私合营基础设施工程的透明度,明确社会资本参与初始设计、项目投资建设、运营和维护全流程的权利和义务,强调政府部门以公开透明的招标方式选择合作伙伴、在招标与质量监督部门间设立防火墙,以最大限度减少腐败现象发生。
以此观之,未来在地方基础建设项目中引入特许经营等公私合营模式将是大势所趋,而相应的法律管理框架也亟待完善。只有在事前铲除贪腐病灶、以市场化逻辑科学指导项目运作,这一合作方式才可能在充分满足双方诉求的基础上绽放出靓丽光芒。(作者系经济学博士)
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