With the completion of tax-sharing system reform in 1994, the financial capacity and governance capacity of the central government have been rapidly improved. In order to encourage the local government to actively achieve the goal of " promoting economical growth and maintaining people’s livelihood”, after 2002, the central government gradually came to allocate the transfer payment in the form of " projects” downward. The special transfer payment allocated by the project application increased rapidly from 37.5 billion yuan in 1995 to 1894.1 billion yuan in 2014, with an average annual growth rate of 22.93%. The huge amount of the special transfer payment has strengthened the governing effect of the central government in relying on the top-down system and gradually formed a unique governance model of " project institutions”. Project institutions establish the hierarchical governance mechanism between the central and local governments, which not only fully arouses the enthusiasm of local governments to carry out the campaign of project competition and develop regional economy, but also increases the debt financing needs of local governments. Actually, project institutions form a financial capital chain with the project as the carrier, the central special transfer as the guide, and the local supporting funds, bank loans and other funds extensively involved. By constructing the dynamic game model which reflects the relationship between central and local governments, we analyze the impact of project institutions on financing decisions of local governments. Then based on the special subsidy and local debt data of 278 cities, we test the expansion effect on the debt of project institutions and the mechanism. The research shows that project institutions significantly promote the expansion of local debts. The effect, on the one hand, comes from the increase of debt financing of public investment demands; on the other hand, comes from soft budget constraints of the special subsidy, which may induce local governments to carry on moral risk behaviors on debt financing, and the effect is more pronounced in poorer regions. The policy implications of this paper include the following: first, a transparent and scientific project application mechanism should be constructed; second, the central government should clearly define the inter-governmental authority and expenditure responsibility as soon as possible; third, the central government needs to tighten budgetary constraints on local governments, and makes its attitudes clear at local debts and reduce the expectations for aids. The potential contributions of this paper lie in two aspects: First, previous literature is mainly based on the perspective of central-local relations, which studies the causes of local government debts, generally emphasizes the influence of the decentralization governance model characterized by " lumpism”. However, it ignores the possible debt expansion effect of project institutions, which is more characterized by centralism. Second, existing empirical literature mostly uses the data of provincial government debts or " chengtou” debts to calculate the total amount of local government debts, but the main body of Chinese government debt issuance is the local government below the provincial level, the main source of debt funds is bank deposits, and the direction of investment of debts is mainly municipal infrastructure construction projects. Therefore, we select the sum of various types of long and short term debts of urban financing platforms and fixed assets investment of municipal public facilities construction from bank loans as the agent variable of local government debts, so as to make the empirical results more reliable.
/ Journals / Journal of Finance and Economics
Journal of Finance and Economics
LiuYuanchun, Editor-in-Chief
ZhengChunrong, Vice Executive Editor-in-Chief
YaoLan BaoXiaohua HuangJun, Vice Editor-in-Chief
The Governance Model of Project Institutions and the Expansion of Local Government Debt
Journal of Finance and Economics Vol. 44, Issue 10, pp. 38 - 52 (2018) DOI:10.16538/j.cnki.jfe.2018.10.003
Summary
References
Summary
[1]Chen J J.Project system and the mobilization of government at the grass-roots level -- a sociological survey of the project operation of social management[J].Social Sciences in China,2013,(2):64-79.(In Chinese)
[2]Chen J,Li J F.Fiscal decentralization, promotion incentive and debt financing behavior of local governments -- empirical evidence from provincial panel based on the perspective of urban investment debt [J]. Accounting Research, 2015, (1) : 61-67.(In Chinese)
[3]Fan J Y, Mo J W. Local government debt, land market and regional industrial growth [J]. Economic Research Journal, 2014, (1) : 41-55.(In Chinese)
[4]Fan Z Y, Li X. Political association effect of minister and the allocation of fiscal transfer payment [J]. Economic Research Journal, 2014, (6) : 129-141.(In Chinese)
[5] Fan Z Y, Zhang J. Fiscal transfer payment, public goods supply and the expansion of government scale [J]. World Economic Paper, 2013, (2) : 1-19.(In Chinese)
[6] Fu W L, Zhao Y H. Fiscal transfer payment and the tax effort of local government [J]. Public Finance Research , 2016, (6) : 16-27.(In Chinese)
[7] Gong Q, Wang J, Jia S. Research on local government debt from the perspective of fiscal decentralization: a review [J]. Economic Research Journal, 2011, (7) : 144-156.(In Chinese)
[8] Guo Y Q, He Y, Li L. Rescue expectation, public pool incentive and big country governance of local government debt financing [J]. Economic Research Journal, 2016, (3) : 81-95.(In Chinese)
[9] Hu Z Q, Huang X L, Liu Y. Local transfer payment from central government and the tax effort of local government -- evidence from China's fiscal practice [J]. Economics Quarterly, 2013, (3) : 799-822.(In Chinese)
[10] Jiang Z Y, Hu Y R. Fiscal decentralization, budget soft constraints and local government debt [J]. Journal of Financial Research, 2016, (2) : 198-206.(In Chinese)
[11] Li P. Concise illustration of fiscal system [M]. Beijing: China Financial and Economic Publishing House, 2010.(In Chinese)
[12] Li Y Y, Shen Y P. Transfer payment and local fiscal revenue and expenditure decision-making -- an empirical study based on provincial panel data [J]. Management World, 2009, (11) : 41-53.(In Chinese)
[13] Li Y Y, Zhang Z N. Does transfer payment improve the incentive for government's social public goods supply?[J]. Economic Research Journal, 2017, (1) : 119-133.(In Chinese)
[14] Li Z P. Practical dilemma of project system and its explanation -- the perspective of national autonomy [J]. Political Science Research, 2015, (5) : 111-122.(In Chinese)
[15] Lu H Y, Lu S F, Chen S X. Relationship capital, institutional environment and the effectiveness of fiscal transfer payment -- empirical evidence from China's prefecture-level [J]. Management World, 2011, (7) : 9-19.(In Chinese)
[16] Lu J. Performance competition, economic transformation and the growth of local government debt [J]. China Soft Science, 2014, (8) : 17-28.(In Chinese)
[17] Ma E T, Yu H L. Fiscal decentralization, local debt control and soft budget constraints [J]. Management Review, 2014, (2) : 24-35, 48.(In Chinese)
[18] Ma H T , Lv Q. Study on debt risk of local governments in China [J].Finance & Trade Economics , 2004, (2) : 12-17.(In Chinese)
[19] Miao X L, Fu R M. Separation of powers and responsibilities, performance environment and extraordinary growth of local government debt [J]. Finance & Trade Economics, 2015, (4) : 17-31.(In Chinese)
[20] Qiu L H, Fu R M, Li F. Research on the moderate scale of government debt from the perspective of economic growth -- based on the analysis of county-level panel data in D province in western China [J]. Nankai Economic Research, 2015, (1) : 13-31.(In Chinese)
[21] Qu J D. Project system: a new national governance system [J]. Social Sciences in China, 2012, (5) : 113-130.(In Chinese)
[22] Sun K. Investigation of the current situation of special transfer payment and optimization of management mode [J]. Public Finance Research, 2010, (8) : 65-67.(In Chinese)
[23] Wang C. Theoretical analysis and empirical test of special transfer payment leakage [J]. Journal of Finance and Economics, 2007, (12) : 58-67.(In Chinese)
[24]Wang C. Progressive budgeting and opportunism -- empirical study on transfer payment distribution model [J]. Management World, 2015, (1) : 18-29.(In Chinese)
[25] Wang J R. Decentralization, local government debt and modern fiscal reform -- effect analysis based on different perspectives of fiscal decentralization [J]. Modern Economic Science, 2016, (6) : 82-92.(In Chinese)
[26] Wang X G, Zhang G T, Shen H B. Fiscal decentralization, promotion incentive and soft budget constraint -- an analysis framework of excessive liabilities of local governments [J]. Public Finance Research, 2012, (3) : 10-15.(In Chinese)
[27]Wei J N. Debt risk and financial crisis of China's local governments [J]. Business Week, 2004, (5) : 42.(In Chinese)
[28]Yang L J, Xu Y C ,Yin H. Will the form of transfer payment affect the revenue and expenditure of local governments? -- theoretical research and empirical analysis [J]. Journal of Finance and Economics, 2015, (7) : 95-109.(In Chinese)
[29]Yin Z D, Tang Y G . Special transfer payment and local fiscal expenditure -- a case study of rural compulsory education subsidy [J]. Economic Research Journal, 2016, (4) : 47-59.(In Chinese)
[30]Yuan D Y, Song X N. Transfer payment and investment decision of local government [J]. Finance & Trade Economics, 2015, (3) : 43-54, 87.(In Chinese)
[31]Zhang L. Effectiveness and limits of "project governance" -- analysis of national public cultural service demonstration area (project) [J]. Humanities Journal, 2013, (1) : 114-121.(In Chinese)
[32]She X Y, Chen Y Y. Hierarchical operation mechanism and governance logic of project system -- sociological analysis of the case of "project entering village" [J]. Social Sciences in China, 2011, (4) : 126-148.(In Chinese)
[33] Zheng S L. Research on project system of Chinese government economic governance [J]. China Soft Science, 2016, (2) : 23-38.(In Chinese)
[34] Zheng S L, Ying S S . Project governance model and China's regional economic development [J]. China Industrial Economy, 2017, (2) : 24-42.(In Chinese)
[35]Zhong H Y, Lu M. How does fiscal transfer payment affect local government debt? [J]. Journal of Financial Research, 2015, (9) : 1-16.(In Chinese)
[36]Zhou F Z . The specialization and problems of financial funds and the discussion on "project governance" [J]. Society, 2012, (1) : 1-37.(In Chinese)
[37]Zhou L A . Administrative contract system [J]. Society, 2014, (6) : 1-38(In Chinese)
[38]Baron R M,Kenny D A. The moderator-mediator variable distinction in social psychological research:Conceptual,strategic,and statistical considerations[J]. Journal of Personality and Social Psychology,1986,51(6): 1173-1182.
[39]Kornai J, Maskin E, Roland G. Understanding the soft budget constraint[J]. Journal of Economic Literature, 2003,41(4): 1095-1136.
[40]Li H B,Zhou L A. Political turnover and economic performance:The incentive role of personnel control in China[J].Journal of Public Economics,2005,89(9-10): 1743-1762.
[41]Maskin E,Qian Y Y,Xu C G. Incentives,information,and organizational form[J]. The Review of Economic Studies,2000,67(2): 359-378.
[42]Oates W E. An essay on fiscal federalism[J]. Journal of Economic Literature,1999,37(3): 1120-1149.
[43]Qian Y Y,Weingast B R. Federalism as a commitment to reserving market incentives[J]. Journal of Economic Perspectives,1997,11(4): 83-92.
[44]Qian Y Y, Roland G. Federalism and the soft budget constraint[J]. The American Economic Review, 1998, 88( 5) :1143-1162.
[45]Weingast B R,Shepsle K A,Johnsen C. The political economy of benefits and costs:A neoclassical approach to distributive politics[J]. Journal of Political Economy,1981,89(4): 642-664.
[46]Xu J G,Zhang X. China’s sovereign debt:A balance-sheet perspective[J]. China Economic Review,2014,31: 55-73.
Cite this article
Ji Yunyang, Fu Wenlin. The Governance Model of Project Institutions and the Expansion of Local Government Debt[J]. Journal of Finance and Economics, 2018, 44(10): 38-52.
Export Citations as:
For