地方政府与城投企业债务风险 研究报告－广西篇 联合资信 公用评级四部 | 孙婧 陈帅 www.lhratings.com 研究报告 1 报告概要 www.lhratings.com 研究报告 2 广西壮族自治区沿海沿江沿边，是中国西南地区最便捷的出海通道，是连接粤港澳与西部地 区的重要通道、"一带一路"有机衔接的重要门户、面向东盟开放合作的"桥头堡"、西部陆 海新通道核心枢纽，资源禀赋优势明显。2024 年，广西经济保持增长，进出口贸易是经济增 长主要驱动力，但 GDP 增速低于全国平均水平；地区生产总值、人均 GDP 及一般公共预算 收入在全国排名靠后，城镇化率较低。广西债务负担偏重，稳定增长的上级补助对综合财力 提供了有力支撑。 广西各地级市经济实力分化明显，南宁市经济发展水平、人口规模、城镇化率均处于领先地 位，柳州市、桂林市和玉林市紧随其后；2024 年，柳州市经济增长承压，GDP 增速落后于其 他地级市。产业结构方面，除百色市、北海市、崇左市和防城港市产业结构以第二产业为主 外，其他地级市产业结构均以第三产业为主，且第一产业普遍占比偏高。受房地产市场持续 低迷影响，大部分地市政府性基金收入出现不同程 ...

从订单降速到清欠发力，"一揽子"化 债第二阶段建筑企业信用风险怎么看？ 联合资信 工商评级一部 刘珺轩 赵兮 李旭 2023 年 7 月，中央政治局会议上提出"制定实施一揽子化债方案"，明确"保存 量、控增量"的化债核心思路。地方政府相关项目在建筑业需求端占据重要份额，本 文回顾了本轮化债以来建筑行业表现，并对后续化债进程对建筑行业的影响进行了研 判。从本轮化债的第一阶段情况看，样本建筑企业地方政府相关项目订单、收入均有 所下降，回款和周转效率恶化，特别是高地方政府项目占比的地方建筑国企短期偿付 压力偏大。"6+4+2 万亿"出台以来，本轮化债进入第二阶段，在央地债务结构优化以 及建立防范化解地方政府债务风险长效机制背景下，预计建筑行业整体需求结构将发 生持续调整，建工企业的信用水平将加大分化。 www.lhratings.com 研究报告 1 一、"一揽子"化债政策梳理 本轮化债政策力度大、指向准，建立了监测口径更全、预算约束更强、监管问责 更严的长效机制，防风险与促发展并重，推动经济发展和债务管理良性循环。 自 2014 年以来，我国已推动多轮地方政府化债。2014 年开始的首轮"化债"主要 将存量债务纳 ...

Investment Rating - The report does not explicitly state an investment rating for the industry Core Insights - Urban investment enterprises have played a crucial role in stabilizing economic growth and promoting urbanization in China since their inception [2] - The development of urban investment enterprises is categorized into five stages: origin and initial development (before 2008), rapid expansion and initial regulation (2008-2013), standardized governance and transformation exploration (2014-2016), strict regulation and risk resolution (2017-2022), and comprehensive debt resolution and accelerated transformation (2023-present) [5][11][42] Summary by Sections 1. Definition of Urban Investment Enterprises - Urban investment enterprises are defined as economic entities established by local governments to undertake financing for government investment projects, possessing independent legal status [4] - They typically finance infrastructure projects through various means such as bonds, bank loans, and public-private partnerships (PPP) [4] 2. Origin and Initial Development (Before 2008) - Urban investment enterprises emerged in the 1990s due to a lack of funding for urban infrastructure and the mismatch between fiscal authority and responsibilities of local governments [8] - By the end of 2008, there were over 3,000 urban investment enterprises focusing on land development and municipal engineering [10] 3. Rapid Expansion and Initial Regulation (2008-2013) - The number of urban investment enterprises exceeded 10,000 during the implementation of the four trillion yuan economic stimulus plan, with significant growth in bond issuance [11][12] - Regulatory measures were introduced to address issues such as debt maturity mismatches and high financing costs [11][13] 4. Standardized Governance and Transformation Exploration (2014-2016) - The new Budget Law granted local governments the authority to incur debt, leading to an increase in bond issuance and a shift towards market-oriented operations [17][20] - By the end of 2016, the total debt of sample urban investment enterprises reached 12.8 trillion yuan, a 42.43% increase from 2014 [26] 5. Strict Regulation and Risk Resolution (2017-2022) - Regulatory policies continued to tighten, impacting the financing capabilities of urban investment enterprises, which experienced fluctuating debt levels [30][32] - The issuance of urban investment bonds and net financing showed a volatile growth trend during this period [32][34] 6. Comprehensive Debt Resolution and Accelerated Transformation (2023-Present) - In July 2023, a comprehensive debt resolution plan was proposed, leading to restrictions on new financing and a decline in bond issuance [42][46] - The pace of urban investment enterprises exiting the platform and transitioning to market-oriented operations has accelerated, with approximately 1,370 enterprises completing the exit process by August 2025 [50]

Report Summary 1. Report Industry Investment Rating No industry investment rating is provided in the report. 2. Core Viewpoints - Since the central government proposed a comprehensive debt - resolution plan in July 2023, over two years have passed, and the progress towards the goal of eliminating implicit local government debt by 2028 is nearly halfway. The debt - resolution efforts have achieved results in both "resolving existing debt" and "curbing new debt" [2][10][11]. - Although local government comprehensive financial resources have declined since 2021 and the overall debt volume has increased, the interest - payment cost has decreased. In 2025, the overall interest - payment pressure is expected to improve compared to 2024, and the tail - end risks have been mitigated [3][34][37]. - In城投 bond investment, there are three major changes: the credit spread has significantly narrowed, showing characteristics similar to interest - rate bonds; the regional differentiation has been significantly reduced; and in the context of low static yields, investors are trying to gain returns from duration, but the timing difficulty has increased [4][49]. 3. Summary by Relevant Catalog 3.1 "Mid - term Exam" of Debt Resolution: Achievements in "Resolving Existing Debt and Curbing New Debt" - **Policy Background**: From July 2023 to October 2025, a series of policies were introduced to promote debt resolution, and the "14th Five - Year Plan" for debt resolution has started a new journey [10]. - **Resolving Existing Debt**: By the end of 2024, the implicit debt was 10.5 trillion yuan, nearly 4 trillion yuan less than in 2023. As of the end of August 2025, 4 trillion yuan of the additional 6 - trillion - yuan special debt quota had been issued. After replacement, the average interest cost of debt decreased by over 2.5 percentage points, saving over 450 billion yuan in interest [11]. - **Debt Structure Optimization**: The proportion of high - cost non - standard debt decreased. By the end of 2024, the non - standard debt proportion in national urban investment interest - bearing debt was 4.8%, down 1.1 percentage points from the end of 2023. Most provinces saw a decline in non - standard debt proportion [12][13]. - **Stable Scale and Reduced Cost of Urban Investment Bonds**: Since July 2023, the scale of urban investment bonds has remained stable at around 16 trillion yuan, and the weighted average coupon rate has dropped from about 4.5% to 3.2%, saving about 20 billion yuan in annual interest [14]. - **Reduced Interest - Payment Cost of Total Interest - Bearing Debt**: The national urban investment total interest - bearing debt interest - payment cost dropped from 5.18% at the end of 2022 to about 4.9% at the end of 2024, and most provinces saw a decline in interest - payment pressure [19]. - **Reduced Non - standard Debt Risks**: The number of non - standard defaults of urban investment has significantly decreased, and the number of non - standard financing new additions, such as trust financing, has also declined [23][30]. - **Controlled Debt Growth**: The growth rate of urban investment interest - bearing debt has been well - controlled, dropping to 5.5% in 2024 and further to 4.9% in the 2025 semi - annual report [27]. 3.2 Mitigation of Tail - end Regional Risks: Overall Debt in Tight Balance - **Decline in Local Comprehensive Financial Resources**: Affected by factors such as economic slowdown and the cold land market, local government comprehensive financial resources reached a peak of about 20.5 trillion yuan in 2021 and then gradually declined to 17.66 trillion yuan in 2024, a 13.8% decrease compared to 2021 [34]. - **Increasing Debt Volume**: The balance of broad - based local government debt reached about 110 trillion yuan at the end of 2024, a 43% increase compared to 2021 [37]. - **Interest - Payment Pressure and Risk Mitigation**: Since 2021, the local government interest - payment pressure has gradually increased. It is expected to improve in 2025 but has not returned to the 2021 level. About two - thirds of the provinces are expected to see an improvement in interest - payment ability in 2025, and the tail - end risks have been mitigated [41][45]. 3.3 "Interest - Rate" Characteristics of Urban Investment Bond Returns: From Regional Differentiation to Duration Timing - **Narrowed Credit Spread**: Before debt resolution, the credit spread of urban investment bonds was over 200bp, 26bp higher than that of industrial bonds. Now it has narrowed to 55bp, and the excess spread compared to industrial bonds has been eliminated [49]. - **Reduced Regional Differentiation**: The gap between the provinces with the highest and lowest credit spreads has shrunk from over 700bp to less than 100bp, and the average credit spread of 12 key provinces has narrowed from 362bp to about 60bp [57][59]. - **Increased Duration Timing Difficulty**: In the context of low static yields, investors try to gain returns from duration, but since 2025, the contribution of the duration - extension strategy to returns has been negative, and the timing difficulty has increased significantly [4][60].

Core Viewpoint - The company has successfully passed a resolution for debt restructuring of certain receivables, which is expected to positively impact its profit for the fiscal year 2025 [5][14][17]. Group 1: Board Meeting - The fifth board meeting of the company was held on November 6, 2025, with all seven directors present, and no votes against or abstentions were recorded [3][4][5]. - The meeting was conducted in accordance with relevant laws and regulations [4]. Group 2: Debt Restructuring Proposal - The board approved a proposal for debt restructuring concerning receivables amounting to 7.369079 million yuan, which is expected to enhance cash flow and reduce receivables risk [5][14][17]. - The restructuring is part of a broader initiative to address local government debt issues, aligning with national policies aimed at financial stability [14][16]. Group 3: Supervisory Board Meeting - The supervisory board meeting was also held on November 6, 2025, with all three supervisors present, and similarly, no votes against or abstentions were recorded [9][10][11]. - The supervisory board supports the debt restructuring, emphasizing its benefits for cash flow and long-term client relationships [10][18]. Group 4: Financial Impact - The debt restructuring is projected to have a positive effect on the company's total profit for 2025, with the final accounting treatment to be confirmed by annual audit results [14][17]. - The agreement stipulates that the debtor must pay 80% of the remaining debt within 30 days, amounting to 7.369079 million yuan, to settle the obligation [16].

Core Viewpoint - The "15th Five-Year Plan" emphasizes the importance of proactive fiscal policy to support economic growth, with a focus on precision and efficiency in implementation [1][2][8]. Fiscal Policy Support for Economic Development - The necessity for enhanced fiscal policy support during the "15th Five-Year Plan" is highlighted, particularly to maintain an average annual GDP growth rate of at least 4.5% to achieve long-term strategic goals by 2035 [2][3]. - The fiscal policy aims to address challenges such as population decline, economic restructuring, and external pressures by increasing spending and optimizing expenditure [2][3]. Investment in Key Areas - Significant investment is required in critical sectors such as modern industrial systems, technological self-reliance, and green transformation, which necessitates substantial public investment led by fiscal policy [3][4]. - Fiscal funding is essential to fill investment gaps and leverage private capital through risk-sharing mechanisms [3]. Expanding Domestic Demand - The strategy emphasizes expanding domestic demand as a strategic foundation, requiring fiscal measures to enhance consumer confidence and investment willingness [4][5]. - Fiscal policy will focus on optimizing spending and improving social security to stabilize expectations and promote a dynamic balance between supply and demand [4]. Promoting Social Equity - The plan aims to advance common prosperity through fiscal measures that address income distribution and enhance social welfare systems [5][6]. - Fiscal policy will play a crucial role in reducing disparities and ensuring equitable resource allocation [5]. Addressing Uncertainties - The fiscal policy must maintain necessary spending levels to counteract increasing uncertainties and risks, including economic downturns and external shocks [6][7]. - A proactive fiscal approach is essential to provide a stable foundation for economic and social development during the "15th Five-Year Plan" [6][7]. Focus Areas for Fiscal Policy - The fiscal policy will maintain a proactive stance, with an expected deficit rate of 3.8% to 4.0%, potentially rising to over 4.2% during significant shocks [8][9]. - Annual issuance of long-term special bonds is projected at around 1.5 trillion yuan, targeting key areas such as technological innovation and social welfare [9][10]. Deepening Fiscal and Tax Reforms - The plan includes reforms to enhance fiscal sustainability and clarify the fiscal relationship between central and local governments [10][11]. - Measures will be taken to improve local tax systems and reduce reliance on land finance, while also addressing local government debt issues [10][11]. Managing Local Government Debt - The strategy outlines a phased approach to resolving existing local government debt, with an annual issuance of special bonds estimated between 4.5 trillion to 5 trillion yuan [11]. - Efforts will focus on categorizing and managing debt risks while enhancing local fiscal capabilities [11].

Core Viewpoint - Shandong Highway Bridge Group Co., Ltd. successfully raised 4 billion yuan through a public offering to reduce debt levels and improve its capital structure, with the funds primarily allocated for repaying existing bank loans [1][2][3]. Group 1: Investment Details - The capital increase involved five strategic investors, including investment arms of the four major state-owned commercial banks, collectively contributing 4 billion yuan [1][2]. - The specific contributions from the investors include: 1 billion yuan from Gongrong Jintou, 850 million yuan from Jianxin Investment, 825 million yuan from Jiaoyin Investment, 826 million yuan from Nongyin Investment, and 499 million yuan from Galaxy Asset Management [2]. Group 2: Financial Impact - The capital raised will be used entirely to repay existing bank debts, with over 50% expected to go towards bank loan repayment, which will effectively lower the company's debt ratio and improve its financial leverage [2][3]. - The capital injection is anticipated to enhance the company's financial stability and credibility in the market, providing greater financial flexibility for future investments or financing activities [3][4]. Group 3: Market Implications - The participation of major state-owned bank investment institutions signals strong market confidence in the future development of the bridge group, potentially attracting more market funds [4]. - As a key player in infrastructure construction, the group's growth is crucial for local economic development and transportation network improvement, aligning with broader goals of debt resolution and state-owned enterprise reform [4].

Core Viewpoint - The prevention and resolution of local government debt risks is a strategic task crucial to overall development, with significant progress made in the implementation of debt replacement policies since 2025, optimizing the debt structure and enhancing fiscal sustainability for high-quality economic development [1][2]. Group 1: Debt Replacement Progress - As of September 26, 2025, approximately 1.986 trillion yuan of the 2 trillion yuan debt replacement bond quota has been issued, achieving over 99% of the annual target [1][2]. - The issuance of "replacement hidden debt special bonds" has seen a notable extension in maturity, with over 700 billion yuan in 30-year bonds issued, and bonds with maturities over 10 years accounting for over 70% of the total [2][4]. - Regions such as Henan and Hubei have remaining quotas of 76.1849 billion yuan and 62.2886 billion yuan respectively, indicating a targeted approach to debt management [2][3]. Group 2: Policy Implementation and Management - The precise allocation of debt replacement resources is a key feature of the current replacement efforts, with the Ministry of Finance guiding localities in formulating bond issuance plans and managing the entire process [4][5]. - The replacement policies have begun to show effects across multiple dimensions, significantly reducing interest expenses and repayment pressures by replacing high-interest, short-term hidden debts with low-interest local government bonds [4][5]. Group 3: Long-term Mechanism and Fiscal Sustainability - The focus of debt management has shifted from emergency responses to a dual emphasis on regular prevention and the establishment of long-term mechanisms, enhancing fiscal sustainability [6][8]. - The Ministry of Finance has indicated plans to continue implementing a series of debt reduction measures, allowing local governments to access funds earlier to repay hidden debts and stabilize market expectations [6][7]. - A performance management system is being proposed to ensure the efficient use of debt funds, emphasizing the need for a shift from quantity management to quality improvement in debt utilization [7][8].

Investment Rating - The industry investment rating is "Positive" and maintained [10] Core Viewpoints - The Ministry of Finance's comprehensive debt reduction measures have been effectively implemented since the fourth quarter of last year, with a focus on accelerating the issuance of local government special bonds and improving cash flow for environmental sectors [2][4][20] - The report highlights that the average interest cost of replaced debts has decreased by over 2.5 percentage points, saving more than 450 billion yuan in interest expenses [4][19] - The report anticipates that the early allocation of part of the 2026 new local government debt limit will further enhance cash flow for various environmental sectors [4][20] Summary by Sections Debt Issuance Progress - As of August 2025, 40% of the 60 billion yuan special debt limit for 2024-2026 has been issued, with 27.8 billion yuan of new local government special bonds issued this year [4][19] - The issuance of special refinancing bonds for debt replacement has accelerated, with 99% of the 2 trillion yuan quota for 2025 already in place [6][21] Cash Flow Improvement - The report suggests that the acceleration of debt reduction will benefit multiple environmental sectors, particularly those with significant government receivables [7][36] - The focus on debt reduction is expected to lead to a substantial improvement in cash flow for To G enterprises, as the government is committed to resolving hidden debt risks [5][20] Investment Logic - Two recommended investment strategies are identified: 1. Value side: Focus on sectors with large absolute receivables and low risk, such as waste incineration and water operations [7][38] 2. Elasticity side: Pay attention to sectors with low price-to-book ratios and high government receivables, where performance is significantly affected by credit impairment losses [7][38] Special Debt Utilization - The report notes that the use of special bonds for clearing government debts has become a new purpose for local government special bonds, with a focus on addressing overdue payments to enterprises [6][35]

Core Viewpoint - The overall risk of local government debt is controllable, with the government strengthening debt management and rapidly implementing a 10 trillion yuan debt resolution plan to alleviate risks and enhance local development momentum [1][5][6]. Group 1: Debt Management and Risks - A report from the National People's Congress highlights ongoing difficulties in government debt management, including issues with the use of debt resolution funds and the emergence of new hidden debts [1][2]. - The Ministry of Finance has disclosed cases of local governments incurring new hidden debts, with Chengdu, Sichuan, adding 61.408 billion yuan in hidden debt through state-owned enterprises [2][3]. - There are instances of "false debt resolution," where local governments misrepresent debt repayments, such as in Siping, Jilin, where 2.85 million yuan was falsely reported as resolved [2][3]. Group 2: Misuse of Debt Funds - Audits reveal that 651.8 billion yuan of local special bond funds have been misappropriated across 92 regions, primarily for "three guarantees" and repaying state-owned enterprise debts [3][4]. - Experts suggest that the misuse of debt resolution funds manifests in three ways: misallocation to new projects, false debt resolution practices, and inefficiencies in fund disbursement [3][4]. Group 3: Future Plans and Recommendations - The Ministry of Finance plans to issue 10 trillion yuan in local government bonds from 2024 to 2028 to replace existing hidden debts, with over 5 trillion yuan already issued [4][5]. - Recommendations include implementing comprehensive monitoring of debt resolution funds, enhancing audit and supervision efforts, and imposing strict penalties for misuse [5][6]. - The government aims to maintain a "zero tolerance" approach to new hidden debts and enforce lifelong accountability for local government borrowing [6].