PPP政府规制的立法政策研究

发布时间：2018-05-18 17:30

本文选题：PPP政府规制 + 公共产品与服务　；参考：《吉林大学》2016年硕士论文

【摘要】：随着国家经济的发展和政府在公共产品和服务供给侧的角色转变,PPP愈发展现出了旺盛的发展势头和强大的活力。在这样的背景下,PPP的相关立法工作也需要更加积极地展开。党的十八届三中全会明确提出“制定非公有制企业进入特许经营领域具体办法”的要求之后,自2013年起,PPP在全国范围内如火如荼地展开。但经过近两年的发展,政府对PPP的规制仍然以政策性规范为主,PPP法律规范则逐渐暴露出数量少、位阶低、实效性差等缺陷。从实践的角度也不难看出,在PPP项目推进过程中,完备的规制体系尚未建立,单纯的政策规制越来越难以应对各种新型问题,因而令业界在肯定PPP未来前景的同时也产生了真真切切的担忧。因此,本文尝试从法政策学的角度,对PPP的各种现有规制手段进行分析和解读,找到现有规制体系由于立法滞后及政策缺陷等因素给PPP模式发展所带来的风险和隐患。目前,以政策规制为主,立法规制为辅的PPP规制总体架构尚未发生根本的改变,绝大多数PPP项目是以政府为主导、自上而下通过发布政策性文件予以引导和推动的。但是,有关PPP的各种政策性文件存在合法性监督缺位、稳定性不足,规定内容相互矛盾、部门利益诉求明显、政出多门等诸多问题,客观上造成了PPP规制手段互相节制、规制体系混乱、政府行政权力滥用、朝令夕改、社会资本犹豫不决等负面效应,致使很多PPP项目陷入签约难、推进难的困境之中。本文主要以发改委和财政部的相关规制文件为参照,系统分析和反思我国现有PPP相关立法与政策规制体系的现状和问题,并尝试对PPP规制体系进行改革和重构,找到PPP规制立法的有效策略和方法。本文认为,应将PPP法律规范、政策引导以及其他各种PPP规制工具有机结合,准确把握PPP发展的核心,加快建立以一般性立法为纲、特定行业及地方立法为目;立法规制为主、政策及其他规制为辅的“立法规制-政策规制-指引指南-合同管理”的PPP多层级立体规制体系,确保作为公共产品与服务供给侧改革创新机制的PPP模式有序健康发展。
[Abstract]:With the development of national economy and the change of the role of the government in the supply side of public goods and services, PPP has shown a strong momentum of development and strong vitality. Under this background, the relevant legislation of PPP also needs to be carried out more actively. After the third Plenary session of the 18th CPC Central Committee explicitly put forward the requirement of "formulating specific measures for non-public enterprises to enter the field of franchise", PPP has been in full swing throughout the country since 2013. However, after nearly two years of development, the government's regulation of the PPP is still based on the policy norm. However, the legal norms of PPP are gradually exposed to the defects of small number, low rank and poor effectiveness. From the point of view of practice, it is not difficult to see that in the process of advancing the PPP project, the complete regulation system has not been established, and the pure policy regulation is becoming more and more difficult to deal with all kinds of new problems. As a result, the industry in the affirmation of the future prospects of PPP, but also a genuine concern. Therefore, this paper attempts to analyze and interpret the existing regulatory means of PPP from the perspective of law and policy, and find out the risks and hidden dangers brought by the current regulatory system to the development of PPP model due to the lag of legislation and policy defects. At present, the overall framework of PPP regulation, which is mainly based on policy regulation and supplemented by legislative regulation, has not been fundamentally changed. Most PPP projects are guided and promoted by issuing policy documents from top to bottom. However, various policy documents related to PPP have many problems, such as the absence of legal supervision, the lack of stability, the contradictory contents of the regulations, the obvious demand for the interests of the departments, and so on, which objectively result in the abstinence of the means of PPP regulation. The system of regulation is chaotic, the government administrative power is abused, the law is changed day by day, the social capital is hesitant and other negative effects, so many PPP projects fall into the difficult position of contracting and pushing forward. Based on the relevant regulatory documents of the NDRC and the Ministry of Finance, this paper systematically analyzes and reflects on the current situation and problems of the existing legislation and policy regulation system of PPP in China, and attempts to reform and reconstruct the PPP regulatory system. Find out the effective strategy and method of PPP regulation legislation. In this paper, we should combine the legal norms of PPP, policy guidance and other PPP regulation tools, grasp the core of PPP development accurately, accelerate the establishment of general legislation, specific industry and local legislation for the purpose, legislative regulation mainly, The PPP multi-level system of regulation supplemented by policy and other regulations "Legislative Regulation-Policy Regulation-guidance Guide-contract Management" ensures the orderly and healthy development of the PPP model as a supply-side innovation mechanism for public goods and services.
【学位授予单位】：吉林大学
【学位级别】：硕士
【学位授予年份】：2016
【分类号】：D922.181

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