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T.C. Süleyman Demirel Üniversitesi Sosyal Bilimler Enstitüsü Maliye Anabilim Dali

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T.C. Süleyman Demirel Üniversitesi Sosyal Bilimler Enstitüsü Maliye Anabilim Dali T.C. SÜLEYMAN DEMİREL ÜNİVERSİTESİ SOSYAL BİLİMLER ENSTİTÜSÜ MALİYE ANABİLİM DALI ALTYAPI HİZMETLERİNDE KAMU-ÖZEL SEKTÖR ORTAKLIĞI: AB ÜLKELERİYLE KARŞILAŞTIRMALI BİR İNCELEME Serap GÜL KIR 1340214503 DOKTORA TEZİ DANIŞMAN Prof. Dr. Levent KÖSEKAHYAOĞLU ISPARTA-2020 (GÜL KIR, Serap, Altyapı Hizmetlerinde Kamu-Özel Sektör Ortaklığı: AB Ülkeleriyle Karşılaştırmalı Bir İnceleme, Doktora Tezi, Isparta, 2020) ÖZET Türkiye’nin de içinde yer aldığı gelişmekte olan ülkelerde altyapı yatırım gereksinimlerinin mevcut kamu kaynaklarını aşması; özel sektörün, kamu-özel sektör ortaklığı yoluyla altyapının finansmanında daha büyük bir rol oynamasını gerektirmektedir ki bu bağlamda, pek çok gelişmekte olan ülke altyapı hizmetlerinin sunumunda kamu-özel sektör ortaklığı uygulamasını başlatmıştır. Avrupa Birliği ülkelerinde ise kamu-özel sektör ortaklığı özellikle kamu kaynaklarının projeleri istenilen kalitede ve düzeyde uygulamakta yetersiz kaldığı durumlarda alternatif bir finansman modeli olarak ortaya çıkmıştır. Bu çalışma, kamu-özel sektör ortaklığı modeliyle altyapıya en fazla yatırım yapan ülkelerden biri konumunda olan Türkiye ile beş AB ülkesindeki altyapı hizmetlerine yönelik kamu-özel sektör ortaklığı yatırımlarının mevcut durumunu tespit etmeyi; varsa alternatif yol ve yöntemler ile meydana gelen sorunları ortaya koymayı; uygulanan sistemin sürdürülebilirliği için yapılması gerekenleri belirlemeyi ve sistemin problemli taraflarına yönelik alternatifler önermeyi amaçlamaktadır. Bu doğrultuda, çalışmanın ilk aşamasında altyapı hizmetleri ve kamu-özel sektör ortaklığı kapsamlı bir şekilde ele alınarak açıklanmış, ikinci aşamada seçilen AB ülkelerindeki altyapı hizmetlerine yönelik kamu-özel sektör ortaklığı yatırımlarının mevcut durumu üçüncü aşamada ise Türkiye’deki altyapı hizmetlerine yönelik kamu-özel sektör ortaklığı yatırımlarının mevcut durumu ortaya konulmuştur. Çalışmanın ampirik kısmını teşkil eden son aşamada ise altyapı hizmetlerine yönelik kamu-özel sektör ortaklığı yatırımları ile ekonomik büyüme arasındaki ilişki beş AB üyesi ülke ile Türkiye özelinde karşılaştırılmıştır. Çalışmada beş AB üyesi ülke ile Türkiye için 1990-2018 yılları arası yıllık veriler kullanılmıştır. Modele yıllık ekonomik büyüme oranları, belirlenen dönemde gerçekleştirilen projelerin sayısı ve değerleri dâhil edilmiştir. Ampirik sonuçlara göre, kamu-özel sektör ortaklığı yatırımlarının ekonomik büyüme oranı üzerindeki etkisinin istatistiksel açıdan anlamlı olmadığı tespit edilmiştir. Anahtar Kelimeler: Altyapı Hizmetleri, Kamu-Özel Sektör Ortaklığı, Panel Veri Analizi iii (GÜL KIR, Serap, Public Private Partnerships in Infrastructure Sevices: A Comparative Review with EU Countries, Ph.D. Thesis, Isparta, 2020) ABSTRACT That the need of infrastructure investments has exceeded current public resources in developing countries where Turkey is also included requires that private sector plays a bigger role in financing infrastructure through public-private partnerships. In this context, many developing countries have started a public-private partnership practice in the provision of infrastructure services. In the European Union countries, public-private partnerships have emerged as an alternative financing model, especially in cases where public resources fail to implement projects at the desired quality and level. This study aims at investigating current situation of public-private partnership towards infrastructure services in Turkey, one of the most invested countries in infrastructure through public-private partnership and five EU countries; putting forth the problems (if any) emerged because of alternative ways and methods; determining what needs to be done for the sustainability of the system implemented; developing recommendations for problematic sides of the system. In this regard, infrastructure services and public-private partnership are discussed and explained comprehensively in the first phase of the study. It was put forth the current status of public-private partnership investments for infrastructure services in EU countries in the second phase, and in the third phase the current state of public-private partnerships for infrastructure investments in Turkey. In the final phase which is the empirical part of the study, the relationship between investments for infrastructure services by public-private partnership and economic growth were compared in the five EU countries and in Turkey using the annual data for the period of 1990-2018 for the countries. Annual economic growth rates, the number and values of the projects realised in that period. According to empirical results, there is no significant effect of public-private partnership investments on economic growth rate. Keywords: Infrastructure Services, Public-Private Partnerships, Panel Data Analysis iv İÇİNDEKİLER TEZ SAVUNMA SINAV TUTANAĞI ......................................................................... İ YEMİN METNİ ............................................................................................................. İİ ÖZET............................................................................................................................. İİİ ABSTRACT ...................................................................................................................İV İÇİNDEKİLER .............................................................................................................. V KISALTMALAR DİZİNİ ............................................................................................İX ŞEKİLLER DİZİNİ ......................................................................................................Xİ TABLOLAR DİZİNİ .................................................................................................. Xİİ GRAFİKLER DİZİNİ ............................................................................................... XİV ÖNSÖZ ......................................................................................................................... XV GİRİŞ ............................................................................................................................... 1 BİRİNCİ BÖLÜM ALTYAPI HİZMETLERİNDE KAMU-ÖZEL SEKTÖR ORTAKLIĞI TEORİSİ 1.1. ALTYAPI HİZMETLERİNİN TANIMI VE NİTELİĞİ ................................. 4 1.1.1. Altyapı Hizmetlerinin Tanımı .......................................................................... 4 1.1.2. Altyapı Hizmetlerinin Temel Özellikleri ......................................................... 6 1.1.3. Altyapı Hizmetlerinde Reform Uygulamaları ............................................... 11 1.1.3.1. Kamu Sektörü Sunumu ve Finansmanında Gerçekleştirilen Reformlar . 12 1.1.3.1.1. Şirketleştirme (Ticarileştirme) .......................................................... 12 1.1.3.1.2. Performans Sözleşmeleri .................................................................. 14 1.1.3.1.3. Desantralizasyon (Yerelleşme-Yerelleştirme-Yerinden Yönetim) .. 15 1.1.3.2. Altyapı Hizmetlerinin Sunumu ve Finansmanında Piyasaya Dayalı Reformlar ................................................................................................ 16 1.1.3.2.1. Demonopolizasyon ve Piyasaların Yeniden Yapılandırılması ......... 17 1.1.3.2.2. Piyasaların Rekabete Açılması ......................................................... 18 1.1.3.2.3. Piyasaların Yeniden Düzenlenmesi (Re-regülasyon) ....................... 19 1.2. KAMU-ÖZEL SEKTÖR ORTAKLIĞININ TANIMI VE NİTELİĞİ ......... 20 1.2.1. Kamu-Özel Sektör Ortaklığının Tanımı ........................................................ 20 1.2.2. Altyapı Hizmetlerine Özel Sektör Katılımı Modelleri .................................. 22 1.2.2.1. İhale Yöntemi .......................................................................................... 23 1.2.2.2. Yönetim Sözleşmesi ................................................................................ 23 1.2.2.3. Kiralama Sözleşmesi ............................................................................... 24 1.2.2.4. Yap-İşlet-Devret (YİD) ve Türleri .......................................................... 26 1.2.2.5. İmtiyaz Sözleşmesi .................................................................................. 28 1.2.2.6. Tasfiye ve Satış ....................................................................................... 30 1.2.3. Kamu-Özel Sektör Ortaklığının Gerekçeleri ................................................. 31 1.2.4. Kamu-Özel Sektör Ortaklığının Olumlu Yönleri .......................................... 35 1.2.5. Kamu-Özel Sektör Ortaklığının Olumsuz Yönleri ........................................ 45 1.3. KAMU-ÖZEL SEKTÖR ORTAKLIĞI EKONOMİSİ .................................. 49 1.3.1. Kamu-Özel Sektör Ortaklığında Karar Verme Süreci ................................... 50 1.3.2. Kamu-Özel Sektör Ortaklığı Projelerinde Yaşam Döngüsü .......................... 51 1.3.3. Kamu-Özel Sektör Ortaklığı Projelerinde Risk ve Risk Paylaşımı ............... 52 v 1.3.3.1. Risk ve Belirsizlik ................................................................................... 52 1.3.3.2. Riskin Sınıflandırılması .......................................................................... 53 1.3.3.3. Uluslararası Standartlarda Risk ............................................................... 55 1.3.3.4. Risk Değerlendirmesi .............................................................................. 55 1.3.3.5. Risk Tedavisi ..........................................................................................
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