【作者】 高林玉；

【导师】 马秀岩；

【作者基本信息】 东北财经大学 ， 国民经济学， 2010， 博士

【摘要】 逐年攀升的城市化率带来我国公用事业领域旺盛的投资需求。公用事业投资规模与效率直接影响着城市的综合承载力,公用事业投资的质量则体现了政府管理社会的能力和水平。传统的计划经济体制下,政府做为公用事业的唯一投资主体,包揽了公用事业规划、投资、经营管理的各个环节。进入二十世纪九十年代以来,我国的公用事业领域仿效欧美发达国家,进行了多元化投资主体的引入和市场化改革。历时20年,公用事业投资市场化改革是否卓有成效?公用事业投资供求的矛盾是否应刃而解?进一步的改革如何推进?带着这些问题,本文展开了相关问题的研究。论文在公用事业投资促进经济增长的前提下展开讨论。在理清公用事业投资问题理论基础的前提下,笔者考察了我国公用事业投资的现状,认为“十一五”期间,我国公用事业投资量骤增,一定程度上缓解了该领域的历史欠帐问题,公用设施服务能力和产品供给能力增强。由于引入多元化投资主体,公用事业企业在竞争中高速发展,形成了一些大型企业集团。但基于公用事业投资存量服务品质提升的要求和增量服务需求的增长,未来相当长的时间内,公用事业投资资金供求缺口仍然存在。地方政府虽然意识到公用事业企业投资效率低下,积极推进国有企业的转制与民营化,但部分城市公用事业垄断的格局并未打破,有些地区改革方法不当,消费者利益受损。究其原因,制度是影响公用事业投融资效率的重要因素。因此,本文考察了公用事业投资体制的变革历程,分析了目前公用事业投资体制中存在的问题,在此基础上提出计划经济体制的“路径依赖”和转型经济体制的“制度缺失”是制约公用事业投资效率提高的重要障碍。论文将公用事业投资主体区分为政府投资主体、国内企业投资主体和外商投资主体。政府投资主体在财政资金软约束的情况下,具有过度投资公用事业的冲动,委托代理链条过长使其很难规避“内部人”控制,致使投资经济效率低下；国内企业投资主体以经济利益为主导,微观投资经济效率较高,但会自动放弃不具市场价值的公用事业服务供给,形成“公共地悲剧”；外商投资主体目前凭借资金实力正在不断扩大其在中国公用事业市场中的份额。针对不同投资主体追求利益的不同表现,论文逐一分析了三类投资主体的激励和约束,论述了政府主导型投资模式、专业投资商主导型投资模式及政企合作型投资模式的利弊,为深化公用事业投资体制改革提供了新的理论依据。公用事业投资与融资行为是一个问题的两个方面,投资与融资密不可分,相辅相承。论文考察了公用事业融资的渠道和筹资的方式,对现有的公用事业投资与融资进行了评价。政府的财政投入应用于公用事业投资需做好“代际筹化”；特种税费应用于公用事业投资因征管不力部分被裁撤,后劲不足；债务资金目前应用最多,管理上需注重占款时间的匹配度等。公用事业投资体制改革的最终目标是为了提高公用事业投资效率,从而实现社会福利的最大化。公用事业投资效率的评价应从投资决策效率、投资生产效率与投资配置效率三个方面入手,兼顾投资的宏观效率与微观效率。为此,论文梳理了公用事业投资效率评价指标,在此基础上,结合公用事业投资特点,提出公用事业投资效率评价应兼顾经济效益、社会效益和环境效益。论文对公用事业投资效率评价指标进行了筛选和补充,建议运用模糊评价法对公用事业投资项目进行科学、客观的评价,以此作为政府扶持公用事业投资项目的标准。英国、美国、法国等发达国家在公用事业投资市场化改革中久经考验,形成了一整套行之有效的管理思路。新兴工业化国家中新加坡的公用事业改革基础与我国极其相似,且被公认为公用事业投资监管最成功的国家；拉美国家与我国相似之处在于正处于城市化急剧上升期。因此,借鉴新加坡和拉美国家的成功做法对我国具有十分重要的现实意义。在考察了发达国家和新兴工业化国家同期进行的公用事业领域投资管理的经验后发现,无论是发达国家还是新兴工业化国家,公用事业投资资金短缺是一种常态,借助私人资本弥补公共产品投资缺失是大势所趋。但公用事业领域中私人投资主体的引入需要有合理的准入和制约机制,以免形成新的垄断和引发社会问题。在提高公用事业服务的数量和品质的基础上,注重“亲贫”机制的建立必不可少。为了保证政府对公用事业领域投资行为的管制效果,管制体系的构建应先行于投资改革全面推进。转轨经济条件下的中国公用事业投资改革情况较之市场经济体系完备的发达国家显然更为复杂,各个领域的改革需要同时推进,以便取得协同效应。如配套法律法规的制定可使政府在政企合作中的承诺长期化,节约双方合作的交易成本；公用事业市场化改革中会不断出现新问题、新情况,因此,建立适宜的争端解决法律机制十分必要；投资者需要合理的投资回报预期,政府需要核定适宜的补贴额度,为了兼顾效率与公平,需要早日形成公用事业市场化定价机制；公用事业投资资产专用性强,行业进入和退出壁垒高,降低市场准入的同时,还需构建合理的投资退出机制,解除投资者的后顾之忧；市场化改革中,为保证消费者利益不受侵害,需用正式制度保证公用事业服务安全；为避免商业化投资者“嫌贫爱富”,服务供给中应强化普遍服务义务,建立“亲贫”机制；最后,为了节约投资成本,提高投资效率,公用事业领域的投融资模式创新应及时总结并加以推广。论文以新制度经济学理论为指导,以激励投资主体、限制垄断、提高投资效率、增进社会福利为主线；以从国外到国内；特殊到一般、理论到实践为内在逻辑,以国内外公用事业改革成功或失败的案例为立论基础,总结规律,最后将之应用于辽宁省公用事业改革实践。通过具体数据,预测了辽宁省公用事业未来十年的投资额度,具体分析了辽宁省公用事业改革中存在的问题,并针对性地提出了具体可操作的意见。更多还原

【Abstract】 It is the climing citilization ratio that push the urgent demand of investment in China’s public utility. The public utility investment size and efficiency affect the capabitility of the city directly, what’s more, the quality of public utility investment show the administration ability of the government. Under the condition of traditional planning economical system, as the sole invester, the government is in charge of all the steps of the planning, investment, operation. Since 1990’s, China follows European and Amercian countries, take on the reform of marketization in public utility areas, pluralistical investers are guidied to this area.20 years have passed, is it efficient that China’s public utility marketization reform? Wether the contradiction between investment supply and demand in public utility has been solved? How to pomote the reform forward nest step? With the puzzle, this paper research associate issues.Public untility investment can promote economy increase, which is the pre-condition in this paper. After clarify the theorical basis of public utility, the author observe the status of China’s public utility investment. It shows that during the 11th five-year-plan period, China enlarge the quantity of public utility investment, it solve the historical debt to some extent and strength the service and product supply ability.Because of the introducing more investors, public utility enterprise developing rapidly in the fierce competence, some of them has grown into huge enterprise group. But since the demand for existed public utility service quality and the extra service quantity have been improved, the capital gap for supply and demand will exist in the near future. The local government realize the low efficiency of public utility enterprise and try their best to enhance the transaction reform and privazation, but the monopoly status of public utility market still exists in some cities. Some city adapt unsuitable reform, the interest of consumer is virolated. Therefore, this paper observes the process of public utility investment system reform, and analysis the problems in the public utitlity investment system. On the base of it, it is pointed out that the most important obstacle to improve the investment efficiency is "path dependence " in planning economic system and " institutional scarce" in transistional economy.The investors participate the public utility investment are divided into government investor, native enterprise investor and foreign business investor. Under the soft financial capital straint, the government investor has the strong will to invest more than necessary, the entrust and agent chain is so long that it hardly can avoid "insider" control, which lower the investment efficiency; native enterprise investor guided by profit, which has higher economic efficiency, they will cancel the services unprofitable and offer "public tragedy"; the foreign business investor are enlarging the market share in China’s opening public utility market. According to the different behavior of the investors, this paper analysis the incentive and constraints factors, analysis the advantage and disadvantage of government-guided investment model, specialty investor-guided investment model and government-enterprise cooperation model, in order to offer theortical basis for further public utility system reform.Public utility investment and finacing is two sides of one problem, investment and financing can’t be divided. This paper observe the different channel and method for public financing and investment, also give the appraisal. The government financial investment is applied into public utility should be given "generation plan"; special tax and fee applied into public utility ivestment is cancelled because of bad levy and administration ability, it can’t last long; debt capital is applied most frequently, time administration of the capital should be given more attention.The final aim for public utilty investment reform is to improve the investment efficiency and realize the maximize the social welfare. Public utility investment efficiency apprisial should be given from three aspect, which including investment decision efficiency, investment production efficiency and investment distribution effieciency. On the base of it, combination with the character of public investment, this paper point out that public utility investment efficiency appraisal should consider economic efficiency, social efficiency and environment efficiency. Therefore, this paper comb the efficiency appraisal index system in public utility investement, suggest fuzzy appraisal method be applied to evaluate the public utility investment project. it set the standard for government which project should be helped.Britian, America, and France etc. developed countries experience more in the public utility market reform, each country has one set of workable administration method. Among the new industrialization countries, Singapore’s public utility reform basis has much similar character with China, also Singapore is regarded as the most successful public utility governance country; Latin American countries are experiencing the rapid citilization just like China. Therefore, obseving developed and the new industrialization countries reform experience in public utility investement administration, it is found that capital scarce in public utility is common whether in developed and developing countries. Private capital are introduced to cover the gap of public goods investment is irresistible. But the introduction of private capital need reseasonable entrenc and constraint mechnisim, so that private capital form the new monopoly and erouse social problem. On the base of improving public utility service quantity and quality, the mechnisim of "close the poor" should be set up. In order to gurantee the regulation effect of government, the regulation system should be built before further investment reform.The reform happened in China is more complex than in developed countries, because the former is in trasitional economy, while the latter’s market economy sysyem is perfect. But since the reform is happening in different area, there are the effort of cooperational benefit. For example, the associated law and regulation can make the government promise last long in the cooperation of government and enterprise, which save the transacition cost. There are always new problems and new status arise in the public utility reform, so establish suitable disbute settlement mechanism is necessary. The invstors need reasonable investment expect, the government need check and ratify suitable subsidy, for the reason of efficiency and fairness, the marketlization price mechanism should formed earlier. Public utility asset is specialized, the industry entrance and withdraw barrier is high, so lower the barrier, and establish suitable capital withdraw mechanism can relieve the worries behind. In the reform, to gurantee the interest of consumer is not infringed, the formal institution can gurantee the public service safety. In the marketliazation reform, to avoid investor offer serive for the rich and ignore the poor, so the investor should be regulated to offer the general service for all the citizens and establish the "close the poor" mechanism. In the end, to save the cost and improve the investment efficiency, public utility investment and finacing innovation model should be summarized and spread.The paper guided by new institution economics theory, clued by inspiring the investors, confine monopoly, improv ing investment efficiency and enhancing social walfare,abide by the logic rule that abroad to domestic, specialty to common, theory to practice, base the theory on the cases success and defeat, draw the conclusion from the practice, and apply the theory to solve the problem of Liaoning Province public utility reform. Using the data, this paper forcast the investment demand in public utility in the future ten years, analysis the exist problems in the reform, and give the countermeasures.更多还原