2025年地方政府债券市场回顾及展望：发行规模创新高，化债步入新阶段

Report Title - "Issuance Scale Hits a New High, Debt Resolution Enters a New Stage — A Review and Outlook of the Local Government Bond Market in 2025" [1] Report Industry Investment Rating - Not provided in the document Core Viewpoints - In 2025, the issuance scale of local government bonds reached a new high, and debt resolution advanced steadily. In 2026, local bonds are expected to be issued earlier and at a faster pace, with bond market interest rates fluctuating at a low level. The focus of debt resolution may shift to the resolution of the operating debt risks of financing platforms, and a unified long - term regulatory mechanism for government debt management is expected to be accelerated [3][43][46] Summary by Directory 1. Policy Review of Local Government Bonds - Active Fiscal Policy: In 2025, a more active fiscal policy was implemented, with a larger - scale government bond issuance plan. The deficit rate was raised to about 4%, and the deficit scale increased by 1.6 trillion yuan. The total new government debt scale reached 11.86 trillion yuan, an increase of 2.9 trillion yuan from the previous year. Policies also continued to standardize and promote land reserve special bonds and optimize the investment direction of special bonds [4][5][6] - Debt Resolution: The implicit debt replacement policy accelerated, and the list of high - risk debt areas was dynamically adjusted. Since the implementation of the "package debt resolution" policy, the implicit debt scale of local governments has decreased from 14.3 trillion yuan at the end of 2023 to 10.5 trillion yuan at the end of 2024, and the average interest cost has been reduced by more than 2.5 percentage points, saving over 4500 billion yuan in interest expenses [10] - Monitoring and Management Mechanism: The local debt monitoring system and government debt risk indicator system were improved, and the special bond management mechanism was optimized. Penalties for illegal debt - raising and false debt resolution were strengthened, and the reform and transformation of local government financing platforms were accelerated [11][12] 2. Review of the Local Government Bond Market from January to November 2025 - Issuance Overview: From January to November 2025, local government bonds were issued 2280 times, with a total amount of 10.01 trillion yuan, a year - on - year increase of 15.22%. Special bonds accounted for 75.00%. New special bonds reached 4.46 trillion yuan, a five - year high. Refinancing bonds were issued at 4.82 trillion yuan, a year - on - year increase of 19.60%, and special refinancing special bonds for implicit debt replacement reached 2.23 trillion yuan [15][16] - Interest Rate and Spread Analysis: The average issuance interest rate of local bonds fluctuated upward from January to November 2025, and the average spread continued to widen. The average spreads in the first three quarters were 11.28bp, 12.01bp, and 17.75bp respectively, and 18.81bp in October and November. Provincial spreads continued to show a differentiated trend [30][31][33] - Investment Areas of Special Bonds: Infrastructure was the main focus of special bond funds. The top five investment areas were urban infrastructure, transportation infrastructure construction, and industrial parks, accounting for 46.02% in total. Land reserve special bonds were restarted, with a total issuance of 3905.41 billion yuan from January to November 2025, showing an accelerating trend [40] 3. Future Outlook of Local Government Bonds - Issuance Forecast: In 2026, the advance - approval new debt quota is expected to be issued faster and in larger amounts. Local bonds will be issued earlier and at a faster pace, and the investment direction of special bond funds will be further optimized. The 2 - trillion - yuan debt resolution quota is expected to follow the 2025 issuance rhythm [42][43] - Interest Rate Trend: Bond market interest rates will fluctuate at a low level, with limited upward pressure and narrowed downward space. The market may face short - term liquidity tightening [44][45] - Debt Resolution Focus: The long - term regulatory mechanism for government debt management is expected to be accelerated. The focus of debt risk resolution may shift to the operating debt of financing platforms, and relevant supporting policies are expected to be introduced [46]