规范地方政府融资平台的法治化路径

发布时间：2018-09-11 08:29

【摘要】：自1988年起,为了规避《预算法》等相关法律法规禁止地方政府举债的规定,解决城市建设所需的资金问题,地方政府相继成立了融资平台公司(以下简称平台公司)。所谓地方政府融资平台,实际上广泛包括地方政府组建的不同类型的城市建设投资公司、城建开发公司、城建资产经营公司等不同类型的公司,这些公司通过划拨土地等资产组建一个资产和现金流大致可以达到融资标准的公司,必要时再辅之以财政补贴等作为还款承诺,重点将融入的资金投入市政建设、公用事业等项目之中。本文在查阅相关文献资料和实地调研基础上,全面分析了地方政府投融资平台的萌芽与起步及后续的发展历程,展望了地方投融资平台的发展前景和路径。作为企业法人而言,平台公司自组建起即存在法律瑕疵,争议较大。另外,还存在注册资本中货币出资偏少、出资不实不规范、大量非经营性资产充做注册资本,部分平台公司从不从事营利性生产经营活动,难以独立承担民事责任等问题。平台公司在运营中也存在着不少问题,从担保来看,存在地方政府提供信用担保、部分权利抵押担保未获法律认可等问题。从公司治理来看,存在法人治理结构不健全等问题。为了解决上述问题,避免因平台公司不规范运作可能导致的金融风险和财政风险,加强平台公司的研究刻不容缓。笔者从工作实际,提出规范平台公司的法治化路径,从长远来看,只有从体制机制上入手,进行财税体制改革,使国家和地方财税制度与地方政府投融资平台的发展相互协调发展,从而财税法律和政策能为平台公司的规范化发展提供制度支持。同时国家应允许省级地方政府适度负债,地方政府的负债可以将社会中的闲散资金重新聚集起来,为国家和社会的公共基础建设提供资金来源,而平台公司则可以成为地方债券用于基础建设的中转器,不过地方政府发行债券应该是有计划的,数量和规模不能太大,否则会给经济发展带来风险和引起金融动荡。就目前而言,则应根据相关的法律法规从分类管理、规范与充实注册资本、规范担保行为、完善法人治理结构入手,对平台公司进行规范化和法治化管理。
[Abstract]:Since 1988, in order to avoid the provisions of laws and regulations, such as the Budget Law, which prohibit local governments from borrowing money, and to solve the problem of capital needed for urban construction, local governments have successively set up financing platform companies (hereinafter referred to as platform companies). The so-called local government financing platform, in fact, widely includes different types of urban construction investment companies, urban construction and development companies, urban construction assets management companies, and other different types of companies established by local governments. These companies set up a company with assets and cash flows that can roughly meet the financing criteria by allocating land and other assets, and when necessary supplemented with financial subsidies and other commitments as repayment commitments, focusing on the investment of the funds involved in municipal construction. Among the public utilities, etc. On the basis of consulting relevant literature and field investigation, this paper comprehensively analyzes the budding and starting of local government investment and financing platform and its subsequent development process, and looks forward to the development prospect and path of local investment and financing platform. As an enterprise legal person, the platform company has the legal flaw since its establishment, the dispute is great. In addition, there are still some problems, such as the small amount of the registered capital, the irregular contribution of the registered capital, the large amount of non-operating assets as the registered capital, whether some platform companies are engaged in the for-profit production and operation activities, and so on, and it is difficult to bear the civil liability independently. The platform company also has many problems in the operation, from the guarantee point of view, the local government provides the credit guarantee, some rights mortgage guarantee has not obtained the legal approval and so on. From the point of view of corporate governance, the existence of corporate governance structure is not perfect and so on. In order to solve the above problems and avoid the financial risk and financial risk caused by the non-standard operation of platform company, it is urgent to strengthen the research of platform company. In the long run, the author puts forward the way to standardize the legal system of platform companies. In the long run, only from the perspective of the system and mechanism, the reform of the fiscal and taxation system should be carried out. The national and local fiscal and taxation systems and the development of local government investment and financing platforms can develop harmoniously, so that the fiscal and taxation laws and policies can provide institutional support for the standardized development of platform companies. At the same time, the state should allow provincial local governments to be moderately indebted, and the liabilities of local governments can reaggregate idle funds in society and provide a source of funding for the public infrastructure of the country and society. Platform companies could be a conduit for local bonds for infrastructure, but local governments should issue bonds in a planned way, not on a large scale or at risk to economic growth and financial turmoil. At present, according to the relevant laws and regulations, we should standardize and enrich the registered capital, standardize the guarantee behavior, perfect the corporate governance structure, and carry on the standardization and the rule of law management to the platform company.
【学位授予单位】：西南财经大学
【学位级别】：硕士
【学位授予年份】：2010
【分类号】：D922.2;F812.5

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