公共财政视野里的地方政府债务风险研究

发布时间：2018-05-14 15:47

本文选题：地方政府债务风险 + 财政风险　；参考：《河南大学》2014年硕士论文

【摘要】：自2007年开始的经济危机逐步席卷全球并最终演化为欧美主权债务危机，债务危机又一次跃上舞台，引起世界各国的关注。正在处于转型关键时期的中国在这场危机中没有幸免于难，内外交困的局面下我国政府果断的推出扩大内需、稳定经济增长的“四万亿”投资计划。该计划确实为我国经济的平稳增长做出贡献，但是，随之而来的是高额的财政赤字和规模庞大的地方政府债务负担。在外部欧美主权债务危机的影响下，我们不得不站在经济全球化的大背景下重新审视存在我国内部的债务问题，重新审视市场经济下政府与市场的冲突。我国目前的地方政府债务风险已然形成。地方政府在举债过程中的随意性、不规范性、无制度约束、少监管导致目前存在的债务从收入到支出的不规范，偏离公共财政建设目标。政府债务的产生是源于对财政赤字的弥补，债务的收入和支出同样与地方财政收入与支出息息相关，因此说地方债务问题是一个财政问题并不过分。在没有相关法律法规的规定、没有破产机制、没有专门的监督机关、政府信息不够公开透明、各级政府间责任划分不明确的国情下，地方政府一旦无法偿付高额债务，必然由更高一级甚至中央财政来兜底，债务风险逐步向财政风险传导，并由下级政府一步步向上级传导，地方政府的债务负担变成了中央财政压力，威胁社会经济的平稳健康运行。因此，从公共财政的角度来研究我国地方政府债务问题具有极大的意义。不仅可以为我国公共财政体制的完善提供必要的理论依据,还可以控制和防范地方政府债务风险，将风险化解在基层政府，避免其传导成为中央政府的负担。通过重新界定政府与市场的关系和职能，充分发挥政府在公共建设领域的作用，扩大市场自主性，完善我国的市场经济建设。本文试图从财政体制建设方面来研究化解地方政府债务风险的路径。首先，分析了当前已经存在的债务风险具有规模大，偿债压力大、举债主体和资金来源多样化、债务风险结构复杂、管理制度不完善、透明度差、债务增长速度快和监管难度越来越大的特点；债务风险形成的财政体制方面原因有政府与市场界限不清，政府存在错位、缺位越位现象、中央与地方财权事权不匹配地方政府财力不足、现行转移支付制度不完善和财政的民主化法制化程度不高四个方面的原因，在这个分析过程中，重点阐述地方政府债务风险问题与财政风险的关系即地方政府债务风险实际上是一个财政风险，，债务风险会向财政风险传导，并沿着基层政府向上级政府最后到中央政府的路线传导成为中央财政风险，地方政府债务风险导致地方财政的不可持续性，加大了地方政府财政运行的不确定性。其次，探讨我国通过财政改革化解地方政府债务风险的实践，主要包括三方面的内容，一方面介绍了国家为防范和化解债务风险颁布的各项条例和相关文件以及执行情况：在相关条例和文件的指导下地方融资平台存在的违规违法融资行为得到有效遏制，各地方政府也纷纷建立起风险预警机制和偿债准备金制度等来防范地方政府债务风险；第二方面则以广东省为例分析当前我国地方政府在防范债务风险方面所采取的措施，包括完善法律制度、改革地方财税体系，加强省级财力、省级官员考核机制，显绩潜绩并重、公开财政账本，预算全面化、减少财政层级，省直管与市直管并行、开展绩效评价试点改革、严控新增债务建立债务管理相关机制七个大方向的改革措施；第三方面分析了地方政府自行发债试点建设成果，并探讨中国地方政府自行发债的意义，得到我国自行发债试点建设逐步扩大，稳步前进，自行发债的意义在于缓解地方政府资金紧张局面，弱化地方政府财政风险发生的可能性，但是当前自行发债试点建设仍然存在缺乏自主性，相关法律和管理机制不健全等缺陷，亟待解决的结论。然后，把我国的地方政府债券的发行和债务管理机制与美国和日本两国进行对比，通过对美日债务管理经验的分析得到美日在债券发行方式、担保方式和资金来源、管理机构设置、法律体系和信息披露和评级制度六个方面的经验值得我们借鉴。最后，提出从财政体制完善上来化解债务风险的建议，即明确政府与市场关系，转变政府职能，深化财政体制改革，通过完善转移支付制度和地方投融资体系和推进税制改革来扩大地方政府财源，并完善相关法律制度建设和监督机制，建立起我国自有的信用评级机构为地方政府债务的化解和地方经济健康平稳运行保驾护航。
[Abstract]:The economic crisis started in 2007 gradually swept over the globe and eventually evolved into a sovereign debt crisis in Europe and America , and the debt crisis took the stage again , which caused the world ' s attention . Under the influence of the crisis of foreign and American sovereign debt , the government resolutely pushed out the " four trillion " investment plan to expand domestic demand and stabilize the economic growth . Under the influence of the external and American sovereign debt crisis , we had to reexamine the debt problem in our country under the background of economic globalization , and re - examine the conflict between the government and the market under the market economy .

At present , the local government debt risk has already been formed . The local government ' s discretionary , non - normative , system - free restriction in the debt - raising process , which leads to the current debt from income to expenditure and deviates from the goal of public finance construction .

Therefore , it is of great significance to study the debt problem of local government from the angle of public finance . It can not only provide the necessary theoretical basis for the improvement of the public finance system in our country , but also control and prevent the local government debt risk , resolve the risk to the grass - roots government and avoid it from being the burden of the central government . By redefining the relationship and function between the government and the market , we can give full play to the role of the government in the field of public construction , expand the market autonomy and perfect the market economy construction in our country .

This paper tries to study the way to resolve the risk of local government debt from the aspect of financial system construction . Firstly , it analyzes the characteristics of the existing debt risk , such as large scale , large debt service pressure , debt burden subject and fund source diversification , complicated debt risk structure , imperfect management system , poor transparency , rapid growth of debt and more difficult regulation .
This paper discusses the relationship between local government debt risk and fiscal risk .
The second part takes Guangdong province as an example to analyze the measures taken by local government in the aspect of preventing the debt risk , including perfecting the legal system , reforming the local finance tax system , strengthening the provincial financial resources , the provincial official examination mechanism , the performance improvement and the equal emphasis , disclosing the financial book , the budget comprehensive , reducing the financial level , saving the straight pipe and the city straight pipe in parallel , carrying out the pilot reform of the performance evaluation , and strictly controlling the new debt to establish seven major reform measures related to the debt management related mechanism ;
The third aspect analyzes the results of the pilot construction of local government bonds , and discusses the significance of the local government ' s self - issuance of debt . It is worth using for reference . Finally , the paper puts forward some suggestions on how to solve the debt risk by perfecting transfer payment system and local investment and financing system and pushing the reform of tax system to enlarge the local government financial resources , and to perfect the construction and supervision mechanism of the relevant legal system .

【学位授予单位】：河南大学
【学位级别】：硕士
【学位授予年份】：2014
【分类号】：F812.5

【参考文献】