公用事业公私合作中公共部门行为研究

【作者】 刘燕；

【导师】 庄起善；

【作者基本信息】 复旦大学 ， 世界经济， 2010， 博士

【副题名】基于EBRD对CEE与CIS国家融资基础上的分析

【摘要】 公用事业在未来一段时间内将是中国社会经济发展的热点。过去的十几年间,中国的城市化水平稳定增长,到2008年底,城市化率达到45.68%。虽然取得不小成就,但仍落后于南美洲国家、中东欧国家等与中国发展水平相近的国家。因此,大力推进城市化、并提高面向全体人口的公用事业普及率还将是未来中国经济、民生发展的重点。而国家的政策导向也说明了这一点。从2008年底开始的经济刺激政策掀起了公用事业建设投资的新热潮,此次建设投资以公共部门为主,其带来的巨大的潜在财政风险以及对“国进民退”的诟病,引发各方关注。当前,在全球公用事业领域,公私合作已经成为一种趋势。无论其对公用事业产品/服务提供效率的提升是来源于产权变动、市场化还是制度框架的变更,从公共部门行为角度,如何与私人机构在合作中形成均衡的博弈关系,并且通过自身行为引导私人机构的生产投资,才是值得关注的焦点。因此,本文的分析立足于此,从理论上分析公共部门在公私合作中的行为方式及其对私人机构的影响,对我国目前公用事业领域吸引社会资本、推进公私合作形成有积极意义的操作思路。同时,本文的分析以欧洲复兴开发银行对中东欧以及独联体国家的融资项目为基础。虽然我们不能将欧洲复兴开发银行看作是严格的公共部门,但是在中东欧与独联体国家推行公用事业公私合作的最初阶段,他们往往向欧洲复兴开发银行请求贷款与经济技术“援助”,此时欧洲复兴开发银行在以项目贷款为基础介入、并搭建平台展开的经济技术合作过程中,往往对项目当地的公共部门具有一定“替代”作用,发挥公共部门在公私合作中的主导作用,推动项目的合作进程。因此,欧洲复兴开发银行在这些案例上积累的经验可供公共部门在推动公用事业公私合作中借鉴。由此得出的实证结果与案例分析结果,对推进公用事业公私合作的操作具有较强的实际意义。论文一共分为七部分。导言。分析了选题意义并对论文的研究范围进行了界定。第一章,文献综述。对公用事业的分析从公共产品与自然垄断的角度展开。前者偏重于分析公用事业产品／服务的公共产品特征,并通过对公共选择理论的分析探讨了公用事业产品／服务提供中私人参与的可能性与必要性,为公用事业公私合作的制度设计提供了理论基础与渊源。后者偏重于对公用事业自然垄断市场结构的分析,并通过政府规制理论探讨公共部门如何通过放松对行业的管制、提升并保持竞争压力。对公私合作的分析,重点是对其界定范围的演变,从强调引入私人产权、市场化机制朝强调合作发展,并在具体的操作层面,对激励约束、风险等方面进行了技术探讨。通过对文献的总结分析,本文进一步明确了研究重点——在公私合作过程中,公共部门的行为方式对私人机构的影响,以及公共部门发挥主导作用的途径。第二章,公用事业公私合作实践概述。通过对英美公私合作界定的描述以及分析公私合作与传统的项目融资以及BOT概念的差异,总结出公私合作的基本特征与关键因素。然后,重点分析了部分在某个公用事业公私合作领域具有典型性的国家与地区的实践,包括英国水务领域、美国天然气领域、法国城市公共交通领域、日本垃圾处理领域的成功经验,同时作为对比,对应用公用事业公私合作不太成功的拉美地区的教训进行了总结,得出推动公用事业公私合作在中观与微观层面需要具备的前提条件与值得关注的操作要素。第三章,公用事业公私合作中公共部门行为的理论分析。应用博弈论对公用事业公私合作中公共部门的行为进行理论分析。重点分析在公共部门采用不同的补贴方式以“鼓励”私人机构参与公用事业公私合作时,私人机构将会如何行动,当行动的结果与公共部门的初衷产生差异时,公共部门如何继续行为或者调整初始行为,来改善公私合作的效果。得出如下结论：公私合作由公共部门主导；公共部门对公私合作的支持具有越高的约束程度,其承诺的可信度越高,越有利于推动公私合作；不同的补贴方式会对私人机构的投资产生差异较大的“鼓励”或制约作用；公共部门加大力度建设商业环境,有利于实现更佳的公私伙伴关系。第四章,EBRD对CEE和CIS国家公用事业公私合作的实证分析。本章是理论分析部分的延续,重点对欧洲复兴开发银行(EBRD)参与的中东欧及独联体地区公用事业公私合作项目进行实证分析。回归结果表明,公用事业公私合作项目比较复杂且具有个案性,因此,回归的拟合度不高,这是回归分析的不足之处。但是不尽完善的回归分析也为深化理论分析的结论提供了思路。公共部门提供预算约束程度较高的直接担保,对吸引私人机构投资有较大作用；公共部门对商业环境改善的努力,将有效缩短公私合作的谈判时间。第五章,EBRD对CIS和CEE国家公用事业公私合作的案例分析。本章以欧洲复兴开发银行对部分项目的后评估报告为基础,选取固废处理、城市供热、供水与污水处理、城市公共交通行业四个领域公用事业公私合作的典型案例进行分析。得出如下结论：对公用事业公私合作的目标设定要循序渐进；公共部门对推进公用事业公私合作承担主导作用,尤其在早期阶段,需要做出较多承诺；公用事业公私合作的本土化有利于平稳推进；公共部门要致力于完善商业环境,从而对推动公用事业公私合作产生积极影响。第六章,结论与对我国上海地区改进公用事业公私合作的启示。对前述章节结论进行总结,并应用以对上海公用事业公私合作基本情况进行分析。认为,在上海公用事业公私合作过程中,公共部门的主导地位体现不恰当,公共部门可信度不足、支持力度较低,商业环境不尽完善。并对公共部门推动公用事业公私合作提出建议：明确公用事业公私合作是一项系统工程；进行必要的项目拆分,加快启动公用事业公私合作；以本土化为目标开展公用事业公私合作。本文分析结论如下：1、公共部门应明确自身在公用事业产品／服务提供中的最终责任人角色,从而在公用事业公私合作中承担主导作用,其对公私合作项目的深度参与以及恰当引导,是公用事业公私合作成功的关键。2、公共部门在推动公用事业公私合作的初期阶段,需要提供较多的承诺与支持,提高公共财政的参与程度,一方面吸引私人机构参与公用事业的商业化运作,另一方面也加强公共部门在公用事业公私合作中受到的约束。公共部门在公私合作中提供支持可以采用不同补贴方式,单位补贴具有固定回报特征,较容易“推动”私人机构过度投资。在可能的情况下,公共部门应在公用事业公私合作中与商业化运营机构达成基于绩效的报酬体系而非固定回报方式。3、公用事业公私合作与商业环境改善(向市场化转型)之间具有相辅相成的作用。更好的商业环境有利于提高公私合作的效果,而公私合作的推进,对于公用事业领域的市场化经营大有裨益。当市场体系并不完善、公用事业尚无法完全商业化运营的阶段,公共部门可以暂时采用固定回报的报酬体系,但需要不断提升公用事业运营的商业环境、提高对其生产的可预测性,以指导商业化运营机构制定合适的投资规模。更多还原

【Abstract】 Public utilities will be a hot point of China economics and society development in the coming decasdes.In the past 10-odd years, the urbanization rate in China increased steadily. In the end of 2008,it had been to 45.68%.Even she has made great improvement in urbanization, but China still falls behind those countries which have same development level such as South American countries and CEE countries. Therefore, making significant efforts to promote urbanization, improving popularity rate of public utilities will be the main point of Chinese social and economic development in future. The country’s policy orientation also has testified it.From the end of 2008,the economy stimulating policies incurred a new wave of investment and construction in public services industries. This time, public sector play a predominant part which causes criticism on potential fiscal risk and "state steps in, while private sectors roll back"Today, public-private partnership(PPP) has became a trend in the global construction and operation of public utilities. It doesn’t matter that the promotion of public production or services is from the ownership’s transformation and marktization or the change of system structures. Because from the view of public management departments, how to make equilibrium partnership between public and private, and guide the private sector’s production and investment should be the focus of studies. So, this thesis analyzed the public sector’s action model in public private partnership and its effects on private sector, and then carried out some suggestions on public utilities attracting social investment and promoting PPP. And this thesis also analyzed the public utilities finance project of European Bank for Reconstruction Development (EBRD) in CEE and CIS countries.Even we can’t take EBRD as a public department in the strict sense, however, in these areas, at the early stage of PPP, the public sector always asked for the finance and technological assistance from EBRD.So EBRD replaced local public sector in its public utilities projects in those countries to some extent. Public sector can learn a lot from EBRD’experiences.The results of the empirical studies and the case analysis maybe very useful to push the state and private cooperation on public industries.This thesis has seven sections.Section 1,analyzing the meaning of topic selection and defining the study scope.Section 2, literature review. We started from public goods and natural monopoly. The first analysis emphasis the characteristics of quasi-public goods, and study the possibility and necessity of private sectors involve by analyzing of the twist of government sectors, and design a framework and model for the cooperation of government and private.The last part laid on the analysis of the framework of natural monopoly public utility markets.It emphasizes on how the public departments enhance and keep the competition ability by releasing the control of this industry. The important part of this analysis on the change of PPP, from private equity rights to partnership. We also discuss incentive-constraint mechanism and risk management analyst of PPP. By analyze so many literatures, this essay clarified the study scope more clearly, in PPP, how the working way of public sector influence the private sector and play a leading role in PPP.Section 3,practice summary on ppp in public utilities. The thesis analyzes the difference between PPP and project finance/BOT, summarizes the main characteristics and key points of PPP. Discussing the practices in some typical countries and regions, including the successful experience of water supply and sewage treatment field of UK, natural gas field of USA, urban transport field of France, waste treatment field of Japan etc.We also conclude the precondition and essential operation factors of PPP as comparison, and find the precondition and key sectors of pushing PPP in public utilities on middle and micro levels.Section 4,theoretical analysis.Using game theory to analyze the action of public sector in PPP. The analysis emphasizes what the private sector do when public sector uses different subsidy type to encourage it to join in PPP, and how public sector react or adjust the first action to improve the performance when the reaction of private sector has the different result from partnership target. Then we get the conclusion, maybe public sector should play a leading role in PPP; the more strict budget constraint of the support to PPP from public sector is, the more credibility is and the more beneficial to promote PPP;different types of subsidy will "encourage" or "restrict" the investment of private sector; public sector should increase the momentum of constructing commercial environment to lead more effective PPP.Section 5,empirical analysis on EBRD data base.The data is from EBRD project cases of public utilities in CEE and CIS countries. The regression result shows that public utilities PPP cases are complex and have more different characteristics.So, the simulation degree of regression isn’t high.It’s the deficiency of empirical analysis. Anyway the result still has value in deepening theoretical analysis. Public sector’s direct guarantee has positive effect on attracting private sector. The improving commercial environment by public sector can shorten the negotiation time of PPP project.Section 6, case study on EBRD data base.This part focuses on the cases from waste treatment, urban heating, water supply and sewage treatment,and urban transport field. And we get the conclusion that the target of PPP in public utilities may be designed step by step;public sector may play a leading role in PPP and make more commitments at the early stage;the localization of PPP may help to progress stationary;and public sector may make efforts on improving commercial environment to create positive effect on pushing PPP in public utilities.Section 7, conclusion and suggestion on practice of PPP in Shanghai.The conclusions of this article are:1.Public sector may play leading role in PPP, the profound involvement of public sector in PPP project and its proper guidance may be the one of key success factors in PPP;2.At the early stage of promoting PPP, public sector may increase the involvement of public finance, thus can attract private sector to attend PPP and put more strict constraint on public sector’s action; public sector may supply more promises and support, improve the involvement of finance, but subsidy per unit would "encourage" excessive investment of private sector, so the payment mechanism may be associated with performance; thus attract private sector as well as strength the constraint of public sector in the cooperation;public department may offer different types of subsidy; if the unit subsidy has fix return character, it may bubble private investment too much; if possible, the public sector would better use the payment based on results, not a fix one.3.There is mutual improvement effect between PPP and the improving of commercial environment.Better commercial environment is helpful for PPP, and the progress of PPP also enhance the marketized management of public utilities. When public utilities don’t have cost-profit mechanism, public sector can offer fixed return to attract private sector. At the same time to improve the commercial environment steadily and make more accurate prediction of real demand of public utilities to guide private sector to plan proper investment size.Using those conclusion, the thesis analyzed the practices of waste treatment, urban transport, water supply and sewage treatment in Shanghai,and deemed that in PPP practice of Shanghai,public sector hasn’t play a proper role, offer trusted and enough support, etc.And the thesis made suggestions that, clarifying that PPP is a systematic progress, so having many problems is normal in development; separating a big project to many small ones to decrease the difficulties;localization.更多还原