城市轨道交通PPP的问题与对策

Problems and Countermeasures of PPP Project in Urban Rail Transit

城市轨道交通PPP项目在推进过程中已遭遇了诸多瓶颈,如项目投资财务缺口大,社会资本投资门槛过高,社会资本以施工承包商为主导致市场结构单一,项目沿线土地综合开发受土地政策限制,城市轨道交通规划与城市规划脱节,项目难点多,等等。通过参考城市轨道交通PPP的投资建设实践,结合对各地城市轨道交通建设案例的研究与分析,尝试提出以下对策:城市轨道交通PPP与TOD结合,通过土地综合开发收益反哺;采用网运分离模式,降低对单个投资人的投资额度要求,发挥各投资人的专业所长;北上广深等一线城市地铁建设运营商走向二、三线城市;地方出台具体政策,突破经营性用地"招拍挂"的法律问题;实施过程中一事一议,加强支持;重视城市轨道交通规划与城市规划从宏观到微观层面的紧密结合;设立合理的调价机制等,以期起到抛砖引玉的作用。

During the construction process of PPP projects in urban rail transit, many difficulties had appeared, for example, the huge financial gap between the investment and income, the excessive high investment threshold for private sector, the simple market structure resulted from the single source of investors, mainly construction contractors, the policy constraints upon comprehensive development of land resources along the rail route, the disparity between the urban rail transit planning and the urban planning, lots of difficulties in the practice of financial management, etc. By referencing the practice of investment and construction for urban rail transit PPP projects,along with the study and analysis of urban rail transit projects in different cities, we attempt to propose several countermeasures to solve the above mentioned problems： combination of PPP and TOD in urban rail transit project with the goal of bringing the benefit of comprehensive development of land resources to the project development; separation of the network and transportation in which the investment threshold of individual private sector could be lowered and the different professional knowledge and skills of each private sector could be fully used in the project development; metro developers and operators in first-tier cities such as Beijing, Shanghai,Guangzhou and Shenzhen move toward to the lower-tier cities, issuance of specific local policies about breakthrough in the constraints on profit-oriented land sales; a stronger support for project development by One Discussion over Each Matter during project development process; emphasis on a closer integration of urban rail transit planning and urban planning from macro and micro perspective; setting up a reasonable pricing adjustment mechanism, etc., for the purpose of starting further discussion on these issues.