Transcript 中国交通基础设施发展的经验

中国交通基础设施发展的经验
The Experience on Developing
Transportation Infrastructure in China
郭小碚
Guo Xiaobei
国家发展改革委综合运输研究所
Institute of comprehensive Transportation, NDRC
主要内容
Main Content
1. 中国交通运输的发展
Transportation Development in China
2. 成功的经验：开放与筹资
Successful Experiences: Opening-up and
Raising Funds
3. 案例
Ⅲ. Case Study
2
一、中国交通运输的发展
A. Transportation Development in China
一、中国交通运输的发展
A. Transportation Development in China
新中国成立60年，特别是改革开放30年，中国交
通基础设施数量快速增长，基本满足了经济发展和社
会进步的需求
Over the 60 years since the founding of the
P.R. China (especially in the 30 years of the
reform and opening-up), transport infrastructures
have gained rapid development，which basically
meets the needs of national economic
development and social progress.
4
铁路、公路旅客和货物运量增长示意图
increased of passenger and freight
25000
20000
Mil.ton &
Mil.persons
15000
10000
5000
0
1952 1957 1962 1965 1970 1975 1980 1985 1990 1995 2000 2005 2008
passenger
freight
5
旅客和货物周转量增长示意图
increased of passenger-km & freight ton-km
4500
1000 Mil.
4000
3500
3000
2500
2000
1500
1000
500
0
1952 1957 1962 1965 1970 1975 1980 1985 1990 1995 2000 2005 2008
passenger-km
freight ton-km
6
中国交通运输的发展
Transportation Development in China
2008年与1978年相比
Compare 2008 with 1978

旅客运输量23281亿人公里，增长13.2倍
Passenger-km reached 2328.1 billion, increased 13.2 times

货物运输量38111亿吨公里（陆上），增长5.8倍
Freight ton-km of inland reached 10551.3 billion, increased
9.7 times
7
交通基础设施发展
Transport Infrastructure Development

建国60年，陆上交通网里程从18万公里增加到394万公里，
增长21倍
By the 60th anniversary of the founding of PRC, the
total mileage of inland transport network has increased
by 3.94 million km from 0.18 million km, increased 21
times
8
Length of Inland Transport Routes
%
4.5
3.94
13.3
4
12
million km
3.5
3
9.3
10
8
2.5
2
1.61
1.5
0.71
1
0.5
14
0.83
0.18
1.21
1.05
4
2.9
2.4
1.5
6
1.4
0
2
0
1949 1960 1970
routes length
1980 1990 2000 2008
average annual growth rate
9
交通运输业投资增加
Investment in transportation has been increased

80年代中期开始，经过约25年的大规模交通基础设施建设，
初步改变了交通运输的紧张状况
From the mid of 1980s, through 25 years' large scale
transport infrastructure construction, the short
situation of transport capacity supply has been
preliminarily eased
10
1990-2007年交通运输业固定资产投资
Investment in Fixed Assets (1990-2007)
1600
1400
Bil.yuan,
RMB
1200
1000
800
600
400
200
19
90
19
91
19
92
19
93
19
94
19
95
19
96
19
97
19
98
19
99
20
00
20
01
20
02
20
03
20
04
20
05
20
06
20
07
20
08
0
11
投资增长：2007年交通运输业投资12372 亿元，是
1978年的154倍
Investment of Transportation is 1237 billion (RMB) in 2007,
154 times the size of the year 1978
Investment of Transportation
1500
100
Mil.yuan,RMB
1000
500
0
Investment
1978 1985 1990 1995 2000 2005 2007 2008
8
23
33
231
552
886
1237 1423
12
二、成功的经验-开放与筹资
B. Successful Experiences: Opening-up
and Raising Funds
二、成功的经验-开放与筹资
B. Successful Experiences: Opening-up and Raising Funds

约25年时间，中国交通运输供给能力增加了10倍以上。最
重要的经验是以改革为动力，实施了：
About 25 years, the transport supply capacity
increased above 10 times. The most important
experience is with reform as impetus.
14
成功的经验-开放与筹资
Successful Experiences: Opening-up and Raising Funds
——按照社会主义市场经济的理论，开放了交通基础设施
建设与经营市场
In accordance with the theory of socialist market
economy, opened transport infrastructure
construction and operation market
——实施多元化筹资途径，保证了交通基础设施建设需求
Implemented multi-channels of raising funds
15
1. 放松管制
Ⅰ. Relaxed Control
（1）转变政府职能，实行全行业管理
Transform government functions, implement entire
trade management

从中央开始下放管理权限
Release administration authority from the central
16
放松管制 Relaxed Control

打破垄断，除铁路外其他运输方式基本上形成了竞争态势
Break monopoly, other transport mode has basically
formed competition situation besides railway

改革运价形成机制，政府逐步放开运价，实行政府调控下
市场浮动
Reform transportation charges to form mechanism,
the government looses transport charges gradually,
implement market fluctuation under governmental
regulation
17
放松管制 Relaxed Control

铁路1986年实行投入产出、以路建路经济承包责任制
In 1986, railway department implemented putting into
production, economy contractor responsibility
system of taking railways to build railways

民航机场于2002年开始实行属地化管理
Civilian airport started to implement possession
management in 2002
18
放松管制 Relaxed Control

港口在80年代中期实行“交通部与地方双重领导，地方管
理为主”；2001年实行属地化管理
In the mid-80s, port authority implemented “dual
leadership of the Ministry of Communications and local
authority, local management primarily”; in
2001,implemented possession management
19
放松管制 Relaxed Control
（2）实行政企分开，减少行政管制，依靠市场力量建设
Implement separating government administration
from enterprise management, reduce administrative
control, depend upon market force to carry on
construction

从80年代中开始，部分公路及港口实行企业化建设与经营
From 1980s, part of road and port departments started
to implement the commercialization construction and
operation
20
放松管制 Relaxed Control

民航于2002年实行了彻底的政企分开，航空公司独立
经营
Civil aviation implemented thorough separating
government administration from enterprise
management in 2002, the Airlines operate
independently
21
放松管制 Relaxed Control
（3）各类企业进入市场，自主承担投资与经营决策的责任
Each kind of enterprise entered market independently,
undertook responsibility of investment and operating
decisions independently

80年代初，外资以贷款方式进入了机场项目
In early 1980s, foreign capital entered airport project
by the way of loans
22
放松管制 Relaxed Control

在高速公路建设中，部分外资率先进入
In construction of expressway, part of foreign capitals
took the lead to financing

90年代开始，大量外资投入港口项目
From 1990s, massive foreign capitals started to invest
in port project
23
2. 开放的政策
Ⅱ. Opening Policy
（1）解放思想，重新认识公共品的属性，区分公益性与经
营性
Emancipate mind, reconsider attribution of public
products , discriminate between public welfare and
operation
24
开放的政策 Opening Policy
——按照使用者付费的原理，对可经营的交通设施项目，
实行贷款建设、使用收费还贷
According to principle of users paying expenses, build
transport infrastructures (which may manage) by loan
and road toll to repay
——真正的公共品实行政府投入与鼓励社会投入相结合
To true public products, implement policy of
combining
25
开放的政策 Opening Policy

实行积极政策，加大政府投入
Carrying out active policies to increase the government
input
——1985年开证车辆购置附加费
The authority has started the collection of vehicle
purchase fee since 1985
——1991年3月铁道部开征铁路建设基金
MoR started the collection of railway construction
fund from March 1991
26
Proportion of capital construction investment
in the transport industry to the total investment
时期/Period
1981～1985
交通基建投资比重
/Proportion (%)
12.3
1986～1990
12.0
1991～1995
17.0
1996～2000
21.5
2001～2003
21.3
27
铁路建设基金与车辆购置税
Revenue of railway construction fund & vehicle purchase tax
Year
Revenue of railway
construction fund
(Bil. Yuan)
Revenue of vehicle
purchase tax (fee)
(Bil. Yuan)
1991
2.0
5.94
1995
34.8
18.14
2000
38.4
N.A.
2005
47.5
58.33
2006
49.9
68.75
2007
56.6
87.69
28
开放的政策 Opening Policy
（2）开放市场——从开放运输市场切入，逐步到开放建设
施工市场，继而开放投资市场
Open market —— started from opening transport
market to opening construction market gradually,
subsequently opening investment market
29
开放的政策 Opening Policy

80年代交通部率先开放公路、水路运输市场
Since early 1980s, the MoC first carried out the opening
of the highway and waterway transport markets

然后又开放了公路基础设施建设与经营市场——收费公路
Then, the highway infrastructure and operation market
was opened，such as “Toll highway”
30
部分年度汽车保有量
Possession of automobile for some years
Year
Total Vehicle
(1000 units)
Of which
Vehicle for
passengers
Vehicle for
freights
1980
1783
351
1299
1985
3211
795
2232
1990
5514
1622
3685
1995
10400
4179
5854
2000
16089
8537
7163
2005
31597
21325
9556
31
开放的政策 Opening Policy

公路建设实行项目法人管理，引入工程招投标与工程监理
The legal person management system is followed,
the bidding and supervision systems are introduced in
the project

开放建设市场，实施资格认证，建立市场准入制度，扩大
施工队伍来源
Open construct market, implement qualifications
authentication, establish market access system,
expand resources of construction troop
32
开放的政策 Opening Policy

开放投资市场 Open investment market
——鼓励外资和社会资金投资交通基础设施建设，包括贷
款与直接投资
Encourage foreign capital and social fund invest in
transportation infrastructural facilities, including loan
and direct investment
——90年代中期大规模实行经营权转让，筹集建路资金
In mid 1990s, implemented operation right transfer
massively, collected funds for road
33
1950-1980年铁路基本建设投资
Capital infrastructure investment of Railway
时期
Period
1953－1957
100万元
Mil. Yuan
5017
其中：中央财政
of which：Central finance
97.9%
1958－1962
8539
95.9%
1963－1965
3301
98.1%
1966－1970
10120
98.7%
1971－1975
14761
98.3%
1976－1980
12266
88.3%
1950－1980
54828
95.7%
34
1991-2005年铁路部基本建设投资结构（%）
Structure of capital infrastructure investment of
the MOR in 1991-2005 (%)
年份
Year
财政 国内贷款
投资总额 建设基金
(10亿元) Construct 资金 Domestic
Amount
ion Fund
State
loans
(Bn. Yuan)
finance
外资
Foreign
loans
债券
单位自筹
Bond Funds raised
by various
units
1991
7.91
20.3
48.5
13.6
4.7
9.7
3.2
1995
32.82
57.5
0.9
26.9
3.5
4.7
6.6
2000
45.68
38.8
10.1
35.3
4.7
——
11.0
2005
74.33
46.4
8.1
21.1
4.9
6.8
5.6
2006
130.09
42.5
4.1
25.1
2.0
22.5
3.8
2007
149.24
28.9
1.2
21.9
1.8
31.3
1.9
35
1950－1980年公路建设资金投入表（%）
Highway financing for construction from 1950 to 1980 (%)
时期
Period
资金总额 中央财政 地方财政
养路费
民工建勤
Total
Central
Local
Maintenance
Labor
(Mn. Yuan) finance
finance
Fee
input
1950－1952
1682
17.5%
---
1.5%
80.9%
1953－1957
3837
28.8
3.9
4.4
62.9
1958－1962
4776
29.5
6.8
11.7
52.0
1963－1965
3045
28.2
3.9
15.6
52.3
1966－1970
5716
22.2
6.1
20.1
51.7
1971－1975
7657
16.7
8.7
30.7
43.9
1976－1980
10631
13.4
7.9
44.9
33.8
Total
37344
20.5
6.6
25.5
47.5
36
公路建设投资结构
Investment structure of highway construction
Item
Unit
2007
2006
2005
2000
2001～
2003
Bil. Yuan
552.3
518.8
465.0
213.7
1748.2
State finance
%
1.46
1.60
2.54
5.78
5.07
Vehicle Purchase Tax
%
12.55
9.49
10.79
7.80
11.14
Domestic loans
%
39.54
43.00
40.06
38.10
42.11
Foreign loans
%
0.83
0.99
1.40
3.85
2.03
Funds raised locally
%
35.58
34.67
33.50
36.35
30.98
Funds raised by
various units
%
7.85
8.28
9.06
3.80
6.15
Others
%
2.19
1.97
2.64
4.32
2.52
Total Investment
37
开放的政策 Opening Policy
（3）保障利益——按照市场规则办事，兼顾各方利益
Implement management according to market rule , pay
proper attention to benefit of all stakeholders

采取招投标制开展公平竞争
Develop fair competition by bidding system

实行合同管理，保护投资者的合理收益
Implement contract management to protect investors'
reasonable income
38
农村公路覆盖面增加
Rural road coverage grown

农村公路覆盖了99%的乡镇、88%的建制村
The rural road covered 99% townships and 88.2% of
villages by the end of 2007

从“十五”开始，加快农村公路硬面化改造
Transformation of rural road surface hardening has
been sped up starting from the “Tenth Five-Year Plan”
39
三、案例
C. Case Study
案例1：公路建设
Case 1: Highway Construction

评价 Appraisal
——1978年～2007年，全国公路里程由89万公里发展到373
万公里，增长3.2倍
From 1978 to 2007, national highway mileage
developed from 890,000 km to 3,580,000 km, grew
3.2 times
——全国主要干线公路基本通畅，部分农村公路质量较差
National main artery road basically unblocked, quality
of part of rural road is poor
41
4000
3730
1000 km
3345
3500
3000
2500
2000
1680
1500
1000
890
888
942
1028
1157
500
0.5
0
1978
1980
1985
1990
Length of road
2.1
1995
16.3
2000
41
2005
60.3
2008
Expressway
1978-2008年公路里程增长
highway length growth from 1978 to 2008
42
公路等级构成变化
Proportion of highways classification (%)
Item
2007
2005
2000
1990
1980
Total (1000km)
3583.7
1930.5
1679.8
1028.3
888.3
Expressway
1.50
2.12
0.01
0.05
——
Class Ⅰ
1.40
1.99
1.50
0.25
0.02
Class Ⅱ
7.73
12.76
10.58
4.22
1.26
Class Ⅲ
10.15
17.86
18.18
16.51
8.96
Class Ⅳ
49.98
47.72
47.10
51.04
45.24
Below Class Ⅳ
29.25
17.55
21.66
27.93
44.52
43
公路建设的政策环境
Policy for highway construction

借钱修路，收费还贷（利用各种资金；保证投资者收益）
Lend money to builds highway, repay by road toll
(use each kind of fund; guaranteed investors' profits)

多元化筹资建路：政府资金、社会力量、商业金融等
Build roads by multiple fund raising: government
finances, social strength, commercial financing etc.
44
公路建设的政策环境
Policy for highway construction

国家从1985年开始征收车辆购置税，专款用于公路建设，
2007年收入超过877亿元
From 1985, the government started to levy vehicle
purchase tax, special fund were used in highway
construction. Revenue was to over 87.7 billion Yuan
by 2007
45
科学规划
Science plan is basis

交通部从90年代初开始编制国家主要公路干线规划，有力
地促进了公路建设
From the early 1990s, Ministry of Communications
began to develop national plan of primary highway
trunk lines, promoted highway construction
powerfully
46
科学规划为依据 Science plan
——五纵七横国道主干线，全长3.5 万公里，已提前完成
Five vertical and seven horizontal national highway
trunk lines with the span of 35,000 km, already
finished ahead of schedule
——国家高速公路网8.5 万公里，正在加快建设
National expressway network of 85,000 km are
speeding up construction
47
案例2：BOT项目
Case 2: BOT project

福建泉州刺桐大桥项目
The Citong Bridge of Quanzhou, Fujian

总投资2.5亿元，1996年12月建成通车
The total investment of 250 million yuan. It was put
into operation in December 1996
48

中国首例由民营企业发起兴建的大型交通基础设施项目
The first large transport infrastructure project
initiated by the private enterprises in China

由政府与民营企业合作投资交通基础设施
An investor of transport infrastructure construction
formed based on the cooperation between
government and private enterprises

15家私有企业组建成立名流公司
15 private enterprises jointly established a Company
named Mingliu
49

名流公司与泉州市政府合资成立注册资金6000万元的泉州
刺桐大桥开发有限公司
A joint venture company of Quanzhou Citong Bridge
Development Co Ltd with registered capital of 60
million Yuan by Mingliu Company with Quanzhou
Government

名流公司占股份60%，泉州市政府占40%股份
The Mingliu Company held 60% shares and the
Quanzhou Government 40% shares
50
杭州湾跨海大桥
Hangzhou Bay Sea-Crossing Bridge

杭州湾跨海大桥全长36公里，投资118亿元人民币
A length of 36 kilometers and total investments of
11.8 billion Yuan

17家民营企业组成5家投资公司，占总投资比例50.3%
17 private enterprises established 5 investment
companies to make investments that accounted for
50.26% of the total
51
案例3：铁路建设
Case 3: Railway construction

评价 Appraisal
——1978年～2008年，全国铁路里程由5.17万公里发展到
7.9万公里，增长53%
From 1978 to 2008, national railway mileage
developed from 51,700 km to 79,000 km, grew by
53%
52
铁路与公路基本建设投资比较
Capital infrastructure investment of
Railway and Highway
Period
Railway （Bn. Yuan）
Highway （Bn. Yuan）
1953－1962
13.5
8.6
1963－1970
13.4
8.7
1971－1980
27.1
18.3
1950－1980
54.8
35.6
1981～1990
72.4
31.0
1991～2000
351.9
801.4
2001～2008
952.6
3998.2
1981～2008
1376.9
4830.7
53
改革滞后，开放不够
Reform lag, opening is insufficient

尚未探索出适合铁路改革的有效道路
Not yet explore an effective path which suits railway
reforms

政企合一的管理经营体制，缺乏经济活力
The management system of government and business
integration lacks economic vitality

传统的行业垄断造成市场经济元素薄弱
Traditional profession monopoly results in market
economy element weak
54
改革滞后，开放不够
Reform lag, opening is insufficient

政策实施较为封闭，难以产生积极效果
Policy implementation seals up, hard to produce
positive effect

投资多元化政策执行不力，建设资金严重缺乏
Investment multiple policy is not executed well,
construction funds are short seriously
55
小结与展望
Summary and Outlook

中国交通基础设施建设取得了巨大成就，总体上是成功
的，走出了一条中国式道路
The Chinese transportation infrastructural facilities
have achieved the great achievement, as a whole is
successful, went out Chinese style path
56

未来的交通基础设施建设还存在巨大的需求潜力，制度改
革与政策开放仍然是法宝
Future transportation infrastructural facilities also will
have the huge demand potential, the institution
reform and the policy open were still magic weapon

未来的交通基础设施建设，将遇到处理好效益与成本关系
的困难
Future transportation infrastructural facilities, will
meet process the benefit and cost relations difficult
57
谢谢！
THANK YOU
July 9, 2009
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