PPP项目异化为地方融资平台的纠正及其法律路径

Correction of PPP Project Alienation as a Local Financing Platform and Legal Countermeasures

PPP项目在实践中异化为地方政府融资平台,表现为项目准入异化为地方政府的行政许可、项目内容异化为地方政府的融资渠道、项目运行异化为地方政府的行政管理。异化源于PPP立法对项目及政府角色的定位不够明确、政府在传统管理模式下形成路径依赖而社会资本尚未成为有效的博弈力量、地方政府正常的融资需求无法得到满足。应通过法治建设纠正PPP的异化现象,完善财政部门对项目和咨询机构的监督、审计部门对项目的审计监督,完善项目退出机制、建立健全"出库"制度,明确公私投资主体之间的风险分担机制,加强对项目的信息披露监管,在加强预算约束的前提下合理放开地方政府的融资渠道。

In practice,the PPP project has become a local government financing platform,in that the PPP project’s access mechanism has been alienated to the local government’s unilateral administrative license,the actual content of the PPP project has been alienated to the local government’s financing channel,and the operation of the PPP project has been alienated to the local government administration.Alienation stems from the ambiguity of PPP legislation’s positioning of PPP projects and government roles,from the government’s path dependence under traditional administrative concepts and models,from social capital has not yet formed an effective game power in PPP projects,and from the normal financing needs of local governments cannot be met.In order to correct the phenomenon of PPP alienation as a local government financing platform by rule of law,we should improve the financial department’s supervision on the projects and consulting agencies,and the audit department’s supervision on the projects;should improve the exit mechanism of the project,and improve the"Treasury"system;should clarify the risk sharing mechanism between public and private investment entities;should strengthen information disclosure supervision of PPP projects;should rationally liberalize the normal financing channels of local governments on the premise of strengthening budget constraints.