地方债务风险化解的过程性治理能力——分析框架与若干问题反思

Procedural Governance Ability of Local Debt Risk Mitigation:Analysis Framework and Reflection on Some Issues

化解防范地方债务风险是我国当前及未来一段时期的重要工作。规模控制、预警技术等路径内生于债务的货币工具属性,遮蔽了对政府能动性的关注,即政府治理能力作为地方债务风险的重要影响因素被疏漏。地方债务风险的产生不限于初始防范与债务化解,举债者的承载能力不足、用债中的注意力分配失衡、化债中的弱化创新发展挤占了公共资源,债务监督评估的单向驱动力加剧了地方债务风险的延伸。而地方政府过程性治理能力,受政治体制与社会多元治理主体的共同形塑,以往地方政府作为风险主要承担者的观念需要重新审视。因此,应系统识别县域发展环境,债务计划限额适当倾斜;落实上级价值规范引导,培育外部信息吸纳机制;着力县域财政守正创新,建立持续性硬预算约束;拓展县域债务监督形式,构建社会参与动力机制。

Resolving and preventing local debt risk is an important work in China’s 14th Five Year Plan and in the future.Scale control,early warning technology and other paths are inherent in the currency attribute of debt,which obscures the attention of government initiative.In other word,government governance capacity as an important factor influencing local debt risk is overlooked.The occurrence of local debt risks is not limited to initial prevention and debt resolution.The process extension of local debt risks is extended by the insufficient carrying capacity of debt,the imbalance of attention distribution in debt,the crowding out of public resources by weakening and innovative development in debt,and the one-way driving force of debt supervision and evaluation.Correspondingly,the process governance capability of local governments is shaped by the political system and the pluralistic governance bodies of the society.In the past,the concept of local governments as the main bearers of risks needs to be reviewed.Based on the analysis framework of process governance capability and empirical data,the article systematically analyzes the characteristics of process governance capability in county-level government debt practice,and puts forward a number of practical reflections.