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    湖州市財政推進政府和社會資本合作(PPP)工作情況及問題建議

    2019年07月22日 08:57 來源:中國政府采購網打印

       一直以來,湖州市委、市政府高度重視政府和社會資本合作(PPP)工作,在2019年度市政府重大事項中提出“推動合規PPP項目新入庫150億元以上”目標。市財政局作為責任單位,將PPP工作作為重點工作,積極創新思路、健全機制、落實責任、協同推進,各項工作從無到有、從摸索到規范,實現了市級“零的突破”。1-6月,全市推動合規PPP項目通過省財政廳審核7個,項目總投資91.57億元,完成年初目標任務的61.05%,為完成全年目標打下了良好的基礎。

      一、主要工作開展情況

      面對PPP工作新形勢、新要求,市財政以推進合規PPP項目入庫為重心,切實做好各項工作:

      一是吃透上級政策精神,明確項目操作邊界和規范要求。早期,中央、省對PPP項目持粗放的支持態度,項目回報機制上允許以政府付費為主,資金來源要求上也較為寬泛,因此,各類道路、橋梁等政府公益性項目得以審核入庫實施。隨著PPP試點推進和政府隱性債務管理要求趨緊,2019年3月,財政部出臺了《關于推進政府和社會資本合作規范發展的實施意見》(以下簡稱“實施意見”),省財政廳也從嚴控新增債務的角度,實行對PPP項目隱性債務的前置審核。市財政局通過文件集中研學、省廳解讀、專家咨詢等途徑,逐項吃透政策要求,確保工作中政策輔導無偏差。特別是對PPP項目經營性收益覆蓋建設期項目公司融資償還責任的要求,在每次項目方案制定對接中,將其作為重點協商內容,群策群力予以商定,確保符合要求,一次性通過上級審核。

      二是據實做好任務分解,把握項目時序進度和入庫節奏。針對年初150億目標任務,市PPP工作領導小組辦公室在征詢各區縣意見和考慮項目申報通過可能的基礎上,排定市本級70億元、兩區各50億元、三縣各10億元的入庫任務。專題召開市PPP領導小組會議分解布置至各區縣,明確年底將對完成情況予以考核,進一步壓實責任。特別是對市本級排定的7個項目,分別排定責任主體,并按照“三個一”的要求,推進項目申報,即:一個項目一個工作小組、一個項目一張時間表、一個項目一張問題表,倒推排定、逐一解決推進,確保有條不紊推進項目申報。此外,把握項目申報節奏,扣準時間爭取每個月1-2個項目入庫申報。

      三是完善工作推進機制,強化項目協同配合和工作合力。成立由常務副市長任組長的PPP工作領導小組,負責政府決策工作,建立聯席工作會議制度,組織領導PPP項目推進。領導小組下設辦公室,負責決策前謀劃建議、日常工作督促和協調。建立PPP推進工作專班和聯絡員制度,市財政、發改委、自然資源和規劃局固定專人聯系,對各項目推進中存在問題的進行協調。各實施主體成立項目工作組,并明確主要聯系人,確保項目對接順暢。建立項目推進情況月報制度,及時掌握全市項目動態。市財政局作為牽頭部門,結合“三服務”活動,對市本級項目“一對一”上門服務,統籌保障各PPP項目前期工作經費,幫助協調解決實際問題,同時完善PPP管理內部操作流程,確保PPP推進過程中各環節的無縫對接。

      二、當前工作推進中遇到的問題

      1.受政策因素制約較大。《實施意見》明確“財政支出責任占比超過5%的地區,不得新上政府付費項目”、“新簽約項目不得從政府性基金預算、國有資本經營預算安排PPP項目運營補貼”等,省財政廳審核時要求須滿足項目經營性收益覆蓋建設期項目公司融資償還責任,這些都對我市PPP項目推進影響較大。當前,我市實施的PPP項目基本上為政府付費或可行性缺口補助的基礎設施投資項目,建設成本大,而經營性資源挖掘有限,覆蓋難度較大。同時,對已入庫的項目,由于項目回報周期較長,部分項目對社會資本吸引力不足,對PPP項目后續的落地實施產生影響。區縣層面,南潯、長興等區縣財政承受能力已到警戒線10%的邊緣,原計劃PPP項目支出從政府性基金預算等安排,現已無法繼續按PPP模式實施。

      2.部分項目推進較慢。項目前期準備是PPP項目推進的基礎,部分項目在土地、環評、立項等環節耗時較長,使得PPP項目實施方案編制時間不可控,影響項目申報進度。此外,項目入庫后,還需經過項目采購、合同簽訂等環節,待項目正式動工,前后時間至少半年以上。相較于傳統模式的項目推進,PPP模式前期時間跨度較長,使項目規范性和時間要求之間產生了矛盾。此外,受政策影響,南潯區、長興縣因無財承空間無法申報;個別區縣因項目推進實際問題需對年初既定計劃予以調整,進一步影響了項目推進的時序和全年目標任務的完成。據統計,下半年全市擬入庫項目8個,預計總投資67.93億元(全年15個項目總投預計159.5億元),8個項目需全部按時順利入庫才能完成全年目標任務,難度較大。

      3.專班機制發揮不到位。PPP項目從提出到落地實施,涉及多個部門,要完成多個行政審批流程,需要有關部門,尤其是PPP領導小組成員單位大力配合,共同推動。雖然在領導小組會議上明確組建工作專班,但因人員沒有抽調到位,各項工作還需逐一逐個的對接,恰逢多個部門機構改革、人員變動,協調推進時間長,一定程度上影響了項目的有效推進。

      4.專業人才相對缺乏。PPP項目實施期限有10-30年,特別是運營期跨度較長,其項目管理專業性強,一般需要專業的法律、財務、稅務、工程、審計、經營等專業人員參與,項目的建設和運營期也存在較多不確定因素,從全國已開展的PPP項目來看,目前在各階段特別是運營期存在問題的項目較多,有些項目的社會資本方甚至提前退出,加上今后年度PPP項目的不斷增加,需要較多的專職和專業人才。目前,辦公室和各實施機構主要依托第三方咨詢機構,但機構專業水平不均,項目操作質量參差不齊,實施機構及相關部門往往因時間緊迫、專業性問題,難以保證項目規劃和決策的科學性,無形中增加了項目的風險隱患。

      三、下一步工作建議

      1.進一步加強前期謀劃。在項目謀劃階段,上級審核的重點是PPP項目的經營性收益是否能覆蓋社會資本前期建設投入的融資成本,經營性收入來源是否長期穩定,是否對項目有效運行進行績效考核并按效付費等。而當前我市急需推進和實施的PPP項目大多是無收益來源,或是收益較少的公益性項目,如市政道路等。因此,在確定PPP項目計劃時,建議統籌已有的經營性項目,通過經營性前景較好的項目與無收入來源的公益性項目組合,以“經營”帶“公益”,來實現經營性收益對融資成本的覆蓋,使之成為真正規范的PPP項目,加快入庫實施。

      2.進一步加快項目推進。PPP模式周期長,架構復雜,不可預見因素較多,各項目實施機構應切實履行主體責任,配強PPP項目管理力量,按要求做好項目立項、方案制定、資本招引、合同簽訂等前期準備工作,并積極借助第三方咨詢機構力量,進一步提升項目實施方案的科學性、規范性和可行性。各區縣,特別是南太湖新區,應適時調整計劃和積極謀劃新增申報PPP項目,切實助力全年150億元目標完成。

      3.進一步完善聯動機制。完善項目推進工作專班制度,從各相關部門抽調項目業務精、工作經驗豐富、綜合素質好的干部,從項目前期立項至合同正式簽署,實行集中辦公,實質性運作,“一條龍”服務項目協調推進。進一步規范PPP管理各部門之間、各單位內部的操作流程,搭建完整、高效的PPP模式運作機制和工作體系。

      4.進一步增強人才儲備。鑒于PPP工作所涉及的知識領域專業性強、政策制度更新快、運營期限長,按照年初PPP工作領導小組會議精神,建議加快成立政府和社會資本合作(PPP)中心,招引工程、金融、財務、法律等方面專業人才。同時,及時組建我市PPP專家庫,讓專業的人幫助把專業的事做好。

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