PPP的层次划分、基本特征及中国实践

PPP模式是推动公共服务领域市场化改革的重要工具.从2014年开始我国掀起大力推广应用PPP模式的热潮,但对PPP的目标及功能定位缺乏系统研究,并引起政策制定及实际应用层面的混乱.近年来我国推广应用PPP模式的主要目标,包括实现新型城镇化发展战略、推动国家治理体系及治理能力现代化、推动全面深化投融资体制改革、推动财政体制改革创新等.目标的多元性,造成PPP模式在制度层面顶层设计的复杂性.在不同的目标定位下,政府部门推广应用PPP模式所遵循的理念及其对应的制度体系设计会表现出明显的不同特点.因而,应基于国内外理论与实践,从PPP作为政府实现特定目标工具的视角,对PPP模式进行总体的层次划分,分析不同类型PPP模式的具体理念、相互关系及项目操作层面的具体差异,并结合实践提出我国推广应用PPP模式的功能定位和相关建议.

Hierarchical Division,Characteristics and Practice of PPP Model in China

PPP model is an important tool to advance the market reform in public services.From 2014,China start a vigorous promotion of the PPP model application.However,the lack of systematic research on the goal and function of PPP model causes a chaos in the policy-making and practical application process.The promotion of the PPP model application in China in recent years mainly aims at the implementation of new urbanization development strategy,the modernization of China's governance system and governance prowess,the further deepening of reform in investment and financing system,and the advancement of reform and innovation in fiscal system,etc.Multiple goals bring complexity to PPP model top design at the institutional level because with different goals,the idea the government follows to advocate the PPP model application and the corresponding institutional system design will exhibit different characteristics.Therefore,based on the domestic and foreign practice of PPP model,the study suggests a hierarchical division of PPP model by taking PPP as a tool of government to realize different goals.It then suggests an analysis of the concept of different types of PPP model,their relationship,and the differences at application level.Finally,it suggests that the goal orientation of the application of PPP model in China and related advice should be put forward combining practical experiences.