基于债务风险的政府或有负债会计信息披露:国际经验与中国现实
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摘要
或有负债可能引发的债务风险是导致政府财政危机的重要因素。当前我国的政府会计及报告体系未能有效地规范或有负债的信息披露,尤其在政府或有负债的确认、计量和报告上,存在着诸多管理真空。借鉴国际经验,需要从以下方面规范政府或有负债的会计信息披露:依据或有事项的发生可能性、事项性质、能否可靠计量等因素进行分类报告;在负债确认后加以持续关注;结合财务核算能力,对计量方法和报告方式做出具体规定;逐步完善政府会计基础向权责发生制转变;推进将或有负债纳入全口径预算管理。
The debt risk caused by contingent liability is an important factor leading to governments' debt crisis. The current governmental accounting and reporting system fails to regulate the disclosure of contingent liability. Especially there are a lot of governance vacuums in the confirmation,measurement and reporting of government's contingent liability. Learning from international experience,we should regulate the accounting information disclosure of government's contingent liability from the following aspects: reporting in different classifications based on the possibilities and properties of contingencies,as well as whether they can be measured reliably or not; keeping attention after the liability is recognized; making specific provisions for methods of measurement and reporting based on financial accounting capacity; gradually improving the government accounting basis into accrual basis; bringing contingent liability into full-covered budget management.
The debt risk caused by contingent liability is an important factor leading to governments' debt crisis. The current governmental accounting and reporting system fails to regulate the disclosure of contingent liability. Especially there are a lot of governance vacuums in the confirmation,measurement and reporting of government's contingent liability. Learning from international experience,we should regulate the accounting information disclosure of government's contingent liability from the following aspects: reporting in different classifications based on the possibilities and properties of contingencies,as well as whether they can be measured reliably or not; keeping attention after the liability is recognized; making specific provisions for methods of measurement and reporting based on financial accounting capacity; gradually improving the government accounting basis into accrual basis; bringing contingent liability into full-covered budget management.
引文
[1]ZHANG Y S,BARNETT S.Fiscal vulnerabilities and risks from local government finance in China[R].IMF working paper,2014.
[2]GREEN S,FAN H,CHEN L.China—We're re-leveraging up[R].Standard Chartered,2012.
[3]余斌.中国财政金融风险问题研究[M].北京:中国发展出版社,2012.
[4]CEBOTARI A.Fiscal risks:sources,disclosure,and management[R].International Monetary Fund,2009.
[5]HANA P B.Contingent government liabilities:a hidden risk for fiscal stability[R].World Bank Publications,1998.
[6]WHEELER G.Sound practice in government debt management[R].World Bank Publications,2004.
[7]HANA P B.Avoiding fiscal crisis[J].World Economics,2012,13:27-52.
[8]KRUMM K L,WONG C P.Analyzing government fiscal risk exposure in China[M]//HANA P B,SEHICK A.Government at risk.New York:The World Bank and Oxford University Press,2002:235-250.
[9]FOUAD M,MARTIN E,VELLOSO R.Disclosing fiscal risks in the post-crisis world[R].International Monetary Fund,2010.
[10]BALDACCI E,MCHUGH J,PETROVA I.Measuring fiscal vulnerability and fiscal stress:a proposed set of indicators[R].International Monetary Fund,2011.
[11]ZEIKATE S.Contingent liabilities—How well do we capture the scope of potential fiscal and debt vulnerabilities in LICs?[R].The world bank debt management facility,2013.
[12]SUNDARESAN S M.Institutional and analytical framework for measuring and managing government's,contingent liabilities[M]//HANA P B,ALLEN S.Government at risk contingent liabilities and fiscal risk.Washington D.C.:The World Bank,2002.
[13]CLAESSENS S,KLINGEBIEL D.Measuring and managing government contingent liabilities in the banking sector[R].Financial Sector Strategy and Policy,World Bank,2000.
[14]ARSLANALP S,LIAO Y.Banking sector contingent liabilities and sovereign risk[J].Journal of Empirical Finance,2014,29:316-330
[15]阳志勇.政府或有负债和金融风险[J].预测,1999(4):28-30.
[16]平新乔.道德风险与政府的或然负债[J].财贸经济,2000(11):5-11.
[17]安秀梅.地方政府或有负债的形成原因与治理对策[J].当代财经,2002(5):34-39.
[18]赵志耘,张德勇.论地方政府或有负债[J].财贸经济,2002(12):20-27.
[19]刘尚希,郭鸿勋,郭煜晓.政府或有负债:隐匿性财政风险解析[J].中央财经大学学报,2003(5):7-12.
[20]佘定华,汪会敏.规范地方政府或有负债会计信息披露的几点建议[J].财务与会计,2011(11):51.
[21]贾璐.我国地方政府或有负债会计问题分析[J].会计之友,2012(9):21-23.
[22]王银梅,潘珊.应用现值理论计量我国地方政府或有负债探究[J].财政研究,2014(2):62-65.
[23]CEBOTARI A.Contingent liabilities:issues and practice[R].IMF working paper,2008.
[24]The International Federation of Accountants.Handbook of International Public Sector Accounting Pronouncements[M].New York:IFAC,2013.
[25]HANA P B,马骏.财政风险管理:新理念与国际经验[M].北京:中国财政经济出版社,2003.
[26]2020年前各级政府须公开全部资产及负债“家底账”[EB/OL].[2016-04-04].http://www.gov.cn/xinwen/2014-12/31/content_2798838.htm.
[27]VELLOSO R.Good practices in fiscal risk disclosure international experience,presentation at IMF high level conference on fiscal risk[EB/OL].[2016-04-04].October//October,disponible sur http://www.imf.org/external/np/seminars/eng/2008/fiscrisk.
[28]应益华.政治信任、合法性和政府会计改革研究[J].湖南财政经济学院学报,2015(1):5-13.
[29]CEBOTARI A.Contingent liabilities:issues and practice[R].IMF working paper,2008.
[30]ALLEN S.Budgeting for fiscal risks[M]//HANA P B,ALLEN S.Government at risk:contingent liabilities and fiscal risk.Washington D.C.:The World Bank,2002.
(1)本文将IPSAS中规定的或有负债界定为狭义或有负债,而将同时涉及狭义或有负债与“准备”两个方面的界定为广义或有负债,并用双引号区分广义与狭义或有负债,或有负债表示广义概念,“或有负债”表示狭义概念。
(1)如法国中央政府会计准则在对风险与负债准备及承诺进行区分时,特别强调中央政府是否期望获得同等的回报,实际上是从另一视角考察了资源流出的可能性。
(1)当资产的市场价值低于约定价值时,看跌期权的持有者可以要求发行者以低于协定价格的价格接受资产;同样,受到担保的出借人也可在市场价值低于面值时行使期权要求付清担保,迫使政府按照面值偿还贷款。
(1)参见Accounting Standard 3.6-Treasury Board-Contingencies。
(2)参见AASB 137:Provisions,Contingent Liabilities and Contingent Assets。
(1)通过政府财务报告方式实现或有负债有效披露的国家如澳大利亚、新西兰、美国、加拿大等;通过政府预算文件有效披露的国家有澳大利亚、奥地利、加拿大、捷克、丹麦、法国等;通过中期财政框架有效披露的国家有哥伦比亚、秘鲁;通过债务管理报告有效披露的国家有日本、捷克、土耳其;通过财政风险报告的有澳大利亚、巴西、智利、哥伦比亚、印度尼西亚、新西兰等。
[2]GREEN S,FAN H,CHEN L.China—We're re-leveraging up[R].Standard Chartered,2012.
[3]余斌.中国财政金融风险问题研究[M].北京:中国发展出版社,2012.
[4]CEBOTARI A.Fiscal risks:sources,disclosure,and management[R].International Monetary Fund,2009.
[5]HANA P B.Contingent government liabilities:a hidden risk for fiscal stability[R].World Bank Publications,1998.
[6]WHEELER G.Sound practice in government debt management[R].World Bank Publications,2004.
[7]HANA P B.Avoiding fiscal crisis[J].World Economics,2012,13:27-52.
[8]KRUMM K L,WONG C P.Analyzing government fiscal risk exposure in China[M]//HANA P B,SEHICK A.Government at risk.New York:The World Bank and Oxford University Press,2002:235-250.
[9]FOUAD M,MARTIN E,VELLOSO R.Disclosing fiscal risks in the post-crisis world[R].International Monetary Fund,2010.
[10]BALDACCI E,MCHUGH J,PETROVA I.Measuring fiscal vulnerability and fiscal stress:a proposed set of indicators[R].International Monetary Fund,2011.
[11]ZEIKATE S.Contingent liabilities—How well do we capture the scope of potential fiscal and debt vulnerabilities in LICs?[R].The world bank debt management facility,2013.
[12]SUNDARESAN S M.Institutional and analytical framework for measuring and managing government's,contingent liabilities[M]//HANA P B,ALLEN S.Government at risk contingent liabilities and fiscal risk.Washington D.C.:The World Bank,2002.
[13]CLAESSENS S,KLINGEBIEL D.Measuring and managing government contingent liabilities in the banking sector[R].Financial Sector Strategy and Policy,World Bank,2000.
[14]ARSLANALP S,LIAO Y.Banking sector contingent liabilities and sovereign risk[J].Journal of Empirical Finance,2014,29:316-330
[15]阳志勇.政府或有负债和金融风险[J].预测,1999(4):28-30.
[16]平新乔.道德风险与政府的或然负债[J].财贸经济,2000(11):5-11.
[17]安秀梅.地方政府或有负债的形成原因与治理对策[J].当代财经,2002(5):34-39.
[18]赵志耘,张德勇.论地方政府或有负债[J].财贸经济,2002(12):20-27.
[19]刘尚希,郭鸿勋,郭煜晓.政府或有负债:隐匿性财政风险解析[J].中央财经大学学报,2003(5):7-12.
[20]佘定华,汪会敏.规范地方政府或有负债会计信息披露的几点建议[J].财务与会计,2011(11):51.
[21]贾璐.我国地方政府或有负债会计问题分析[J].会计之友,2012(9):21-23.
[22]王银梅,潘珊.应用现值理论计量我国地方政府或有负债探究[J].财政研究,2014(2):62-65.
[23]CEBOTARI A.Contingent liabilities:issues and practice[R].IMF working paper,2008.
[24]The International Federation of Accountants.Handbook of International Public Sector Accounting Pronouncements[M].New York:IFAC,2013.
[25]HANA P B,马骏.财政风险管理:新理念与国际经验[M].北京:中国财政经济出版社,2003.
[26]2020年前各级政府须公开全部资产及负债“家底账”[EB/OL].[2016-04-04].http://www.gov.cn/xinwen/2014-12/31/content_2798838.htm.
[27]VELLOSO R.Good practices in fiscal risk disclosure international experience,presentation at IMF high level conference on fiscal risk[EB/OL].[2016-04-04].October//October,disponible sur http://www.imf.org/external/np/seminars/eng/2008/fiscrisk.
[28]应益华.政治信任、合法性和政府会计改革研究[J].湖南财政经济学院学报,2015(1):5-13.
[29]CEBOTARI A.Contingent liabilities:issues and practice[R].IMF working paper,2008.
[30]ALLEN S.Budgeting for fiscal risks[M]//HANA P B,ALLEN S.Government at risk:contingent liabilities and fiscal risk.Washington D.C.:The World Bank,2002.
(1)本文将IPSAS中规定的或有负债界定为狭义或有负债,而将同时涉及狭义或有负债与“准备”两个方面的界定为广义或有负债,并用双引号区分广义与狭义或有负债,或有负债表示广义概念,“或有负债”表示狭义概念。
(1)如法国中央政府会计准则在对风险与负债准备及承诺进行区分时,特别强调中央政府是否期望获得同等的回报,实际上是从另一视角考察了资源流出的可能性。
(1)当资产的市场价值低于约定价值时,看跌期权的持有者可以要求发行者以低于协定价格的价格接受资产;同样,受到担保的出借人也可在市场价值低于面值时行使期权要求付清担保,迫使政府按照面值偿还贷款。
(1)参见Accounting Standard 3.6-Treasury Board-Contingencies。
(2)参见AASB 137:Provisions,Contingent Liabilities and Contingent Assets。
(1)通过政府财务报告方式实现或有负债有效披露的国家如澳大利亚、新西兰、美国、加拿大等;通过政府预算文件有效披露的国家有澳大利亚、奥地利、加拿大、捷克、丹麦、法国等;通过中期财政框架有效披露的国家有哥伦比亚、秘鲁;通过债务管理报告有效披露的国家有日本、捷克、土耳其;通过财政风险报告的有澳大利亚、巴西、智利、哥伦比亚、印度尼西亚、新西兰等。