基础设施领域PPP模式推动我国政府职能转变的研究

发布时间：2018-03-22 14:07

本文选题：基础设施　切入点：PPP　出处：《南京大学》2017年硕士论文　论文类型：学位论文

【摘要】：自公共行政学创立以来,政府职能就得到了学界广泛而持续的关注。基础设施是满足生产与生活需求,促进社会经济发展,提升国家综合实力的重要因素。长期以来,基础设施供给也被认为是政府的专属职能。随着市场经济和社会治理体系的发展,政府不再是基础设施的唯一供给主体。PPP(政府与社会资本合作)模式克服了基础设施领域传统政府垄断供给和全盘民营化的弊端,作为一种新型的基础设施供给机制,PPP模式在世界范围内得到了空前的发展。伴随着中国经济进入新常态,日益增长的基础设施需求和有限的政府供给能力之间的矛盾愈发紧张,这无疑促进了基础设施领域的供给侧改革。2013年,在十八届三中全的政策引导下,PPP模式在我国迎来了新一波发展高潮。此后国务院和中央部委密集出台了 PPP的相关政策法规,地方政府也跟进推出了各类基础设施领域的PPP项目,2015年更是被市场称之为"PPP元年"。在PPP发展的新阶段,PPP模式不仅应当被视为基础设施领域的一种融资方式,更是应该被看作一种新型的治理方式。当前,推广运用PPP模式的深层、长远意义还在于推动政府职能转变,完善我国的治理能力与体系。在我国,与传统的基础设施政府垄断供给模式相比,PPP模式促进了政府角色的多重创新,包括从直接投资者、直接生产者、直接经营者、微观管制者转向合作资源的提供者、公共服务的供给者、特许经营权授予者、宏观引导者与监督管理者等。从当前政府职能转变的总体趋向和价值取向来看,PPP模式是契合当前政府职能转变的一种路径选择。PPP模式着眼于提高基础设施供给效率的同时,强调治理主体间的多元参与以提高治理能力,通过政府与社会资本在基础设施领域的复合供给,更好地平衡公平与效率的关系,从而保障公共利益的最大化。当前社会主义市场经济的发展、政策引导与政治支持、公民社会的壮大、社会资本自身的合作动机与优势,都为PPP模式推动政府职能转变提供了可能性。同时,从PPP模式的实践成果来看,虽然它在推动政府职能转变方面的改革已经取得了初步成效,但在这一过程中依然面临着一系列亟待解决的困境。本文主要依照"价值取向——社会条件——实践机制"层层递进的逻辑,从抽象的精神层面到外部的支持条件,再到具体的实际操作层面分析了 PPP模式推动政府职能转变存在的困境。最后,本文以问题为导向,提出了加快基础设施领域PPP模式中政府职能转变的建议,主要集中在服务型政府背景下公共意识的重塑、通过制度创新完善政府的内部治理体系,提供政府与社会资本良好合作的外部环境,实现公共行政从忽视他者甚至拒绝他者到承认他者的治理地位、加强与他者合作的转变。这是积极稳妥地推进政府职能转变,也是改善治理能力与体系的应有之义。
[Abstract]:Since the establishment of public administration, the function of government has received extensive and sustained attention in academic circles. Infrastructure is an important factor to meet the needs of production and daily life, to promote social and economic development, and to enhance the comprehensive strength of the country for a long time. Infrastructure provision is also considered to be the exclusive function of the government. With the development of market economy and social governance system, Government is no longer the sole provider of infrastructure. PPP (Cooperation between Government and Social Capital) model overcomes the drawbacks of traditional government monopoly and privatization in infrastructure. As a new type of infrastructure supply mechanism, PPP model has been developed all over the world. With China's economy entering the new normal, the contradiction between the increasing demand for infrastructure and the limited capacity of government supply is becoming increasingly tense. This undoubtedly promoted supply-side reforms in the field of infrastructure. In 2013, under the guidance of the policy of the 18th third Middle School, the PPP model ushered in a new wave of development climax in our country. Since then, the State Council and central ministries and departments have issued intensively the relevant policies and regulations of the PPP. Local governments have also been following up on the introduction of PPP projects in various areas of infrastructure, which the market calls the "first year of PPP" in 2015. In the new phase of PPP's development, the PPP model should not only be considered as a form of financing in the field of infrastructure. It should be regarded as a new type of governance. At present, the promotion of the application of PPP mode in the deep, long-term significance is also to promote the transformation of government functions, improve our governance capacity and system. Compared with the traditional infrastructure government monopoly supply model, the PPP model promotes multiple innovations in the role of the government, including from direct investors, direct producers, direct operators, micro-regulators to providers of cooperative resources. A provider of public services, a franchisee, From the general trend and value orientation of the current transformation of government functions, PPP model is a path choice suitable for the current transformation of government functions. PPP mode focuses on improving the efficiency of infrastructure supply. Emphasizing the pluralistic participation among the governing bodies to improve the governance ability, and better balance the relationship between equity and efficiency through the compound supply of government and social capital in the field of infrastructure, In order to ensure the maximization of public interests, the development of the socialist market economy, policy guidance and political support, the growth of civil society, the motive and advantages of social capital cooperation, Both provide the possibility for the PPP model to promote the transformation of government functions. At the same time, from the practical results of the PPP model, although it has achieved initial results in promoting the transformation of government functions, However, in this process, there are still a series of predicaments to be solved urgently. According to the logic of "value orientation-social condition-practice mechanism", this paper is mainly based on the logic of "value orientation-social condition-practice mechanism", from the abstract spiritual level to the external support conditions. Finally, the paper puts forward some suggestions to accelerate the transformation of government function in PPP mode in infrastructure field. It mainly focuses on the reconstruction of public consciousness under the background of service-oriented government, improving the internal governance system of the government through institutional innovation, and providing the external environment for good cooperation between the government and social capital. It is necessary to realize the transformation of public administration from neglecting or even rejecting others to recognizing the governance status of others and strengthening cooperation with others. This is to actively and steadily promote the transformation of government functions and also to improve the governance capacity and system.
【学位授予单位】：南京大学
【学位级别】：硕士
【学位授予年份】：2017
【分类号】：F283;D630

【相似文献】