中国农村信用合作社管理体制改革研究
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摘要
2003年以来，按照理性化、规范化和市场化的原则，农村信用合作社交给地方政府管理，以优化农村信用合作社运作的初始状态，改善农村信用合作社内外部环境。这一轮改革政策落实到位，初具成效。然而农村信用合作社管理体制改革方面目标不明确，产权结构复杂化、法人治理结构形式化、管理系统无序化、改革模式简单化等问题凸显，亟待完善。
本文通过分析国外信用合作组织管理体制的典型经验以及中国农村信用合作社管理体制改革的历史，从横向与纵向两方面提炼当前农村信用合作社的双重改革目标，由此展开对双重改革目标实现方式的探讨：微观角度探讨股份制产权改革和法人治理结构完善；中观角度探讨管理系统优化；宏观角度探讨多元改革模式及地区差异评价。最后提出深化农村信用合作社管理体制改革的政策建议。
各章主要内容如下：
第一章导论。说明本文的研究背景、选题意义；提出本文的研究思路及基本的研究方法；概括国内外相关研究动态综述，提出论文的可能创新之处。
第二章信用合作组织管理体制的国际经验及借鉴。通过对德国、美国、法国、日本等国家信用合作组织管理体制的考察，得出实践中应明确中央和地方政府对农村信用合作社管理与服务的角色定位，建立国家政策扶持和监管下的省域农村合作金融管理框架，着力促进农村信用合作社多样化发展等基本观点。
第三章中国农村信用合作社管理体制改革历程。通过历史回顾，总结农村信用合作社管理体制改革的政府主导性。提出政府主导行为一方面来自政府汲取农村资金、防范金融风险的需要，另一方面来自农村信用合作社长期缺乏合作制经济主体的支持而生成政府主导行为需求。农村信用合作社因此面临政策目标和效益目标这双重改革目标。
第四章中国农村信用合作社管理体制双重改革目标分析。探讨农村信用合作社管理体制的双重改革目标：信贷支农政策目标、可持续发展效益目标。运用VAR模型探讨信贷支农改革目标，发现支农贷款对农业经济发展的影响相对较弱，应加大信贷支农效率；理论分析可持续发展改革目标，提出应着力化解不良资产，进而把农村信用合作社建设成多形式股份制商业金融机构。
第五章中国农村信用合作社股份制产权改革。结合农村信用合作社产权改革的争议，认为在制度安排上，合作制向股份合作制进化、股份合作制向股份制进化符合现代商业金融的发展路径。基于出资者行为的股份制产权改革均衡分析表明，合作制股权价值和股东出资收益的协同作用制约着农村信用合作社股份制产权改革的结果，产生农村合作金融机构市场分离均衡。
第六章中国农村信用合作社法人治理结构完善。基于机构设置、权责结构和管理环境等影响因素，运用Probit模型分两阶段计量分析样本农村信用合作社法人治理结构。结果显示：社员民主管理、内部人控制和人力资源管理对农村信用合作社法人治理结构的影响较大，法人治理结构完善过程中需重点理顺社员、职工、高级管理人员之间的权责关系。
第七章中国农村信用合作社管理系统优化。通过考察农村信用合作社管理体系中乡社式布局、县联社、省联社的现实，认为乡社式布局具有有效性和低效性、县联社使农村信用合作社决策核心上移、省联社管理权和职能定位不明确。而省政府管理县联社和省联社、县联社管理基层社的管理系统有序化程度最高，可供实践借鉴。最后提出需改变银监会对农村信用合作社有权无责的金融监管；应推动省联社行使行业自律职能。
第八章中国农村信用合作社多元改革模式及地区差异评价。结合农村信用合作社改革模式方面的政策，认为农村信用合作社转制为农村合作银行或农村商业银行的“花钱买机制”预期设想往往会落空，县联社统一法人模式仍然可行。结合农村信用合作社股份制产权改革路径，对陕西省样本农村信用合作社进行因子分析和聚类分析，得出结论：经济发展的不平衡性在很大程度上影响着农村信用合作社三种改革模式的布局。
第九章深化农村信用合作社管理体制改革的政策建议。在总结前文的基础上，提出深化农村信用合作社管理体制改革的政策建议：优化农村金融生态、构建多元化农村金融市场、加大政策扶持力度、改善政府管理方式、推进合作金融法规建设。
Since2003, in line with the principles of rationalization, standardization andcommercialization, rural credit cooperatives have been managed by the local government inorder to optimize the initial state of its operation and improve the interior and exteriororganization environments. This reform policy has been fulfilled and some primaryachievements have been accomplished. Yet many problems are displayed such as lackingspecific objective for management system reform of China's rural credit cooperatives,complicated equity organization structure, formalization of corporate governance structure,disorderliness in management system, and simplicity in reform mode, so it is urgent toimprove the management system reform of China's rural credit cooperatives.
Through analyzing the typical experience in management system of credit cooperativeorganizations in foreign countries, and the management system reform history of China’s ruralcredit cooperative, the double goals of such reform are extracted vertically and horizontally,and then the methods of actualizing the double reform goals are discussed: includingeconomic analysis of the shareholding system reform and empirical analysis of corporategovernance of rural credit cooperatives from a micro-perspective; structural analysis ofmanagement system from a medium perspective; and analysis of pluralistic reform patternand regional differences from a macro perspective. Finally, some policy recommendations aremade to deepen the reform of the management system of rural credit cooperatives.
This paper consists of the following chapters:
Chapter1: Introduction. This chapter introduces the research background andsignificance, brings forward the research thread and main research methods, reviews thedomestic and foreign research literature and suggests the possible innovations of this paper.
Chapter2: International experience in management system of credit cooperativeorganizations. Through analysis of the management system of credit cooperativeorganizations in Germany, the United States, France, Japan and other countries, it isconcluded that the central government and local governments should clearly understand theirroles in managing and serving the rural credit cooperatives. At the same time, it is proposed toestablish a financial management framework of provincial rural credit cooperatives with thesupport and supervision of national policies, and to construct diversified regionaldevelopment patterns of rural credit cooperatives.
Chapter3: The reform course of management system in rural credit cooperatives.Through reviewing the history, the government’s orientation in management system reform ofrural credit cooperatives is summarized. It is argued that the motivation ofgovernment-oriented reform of rural credit cooperative can be ascribed to two reasons: firstlyit is required by government's absorption of rural capital and financial risk prevention, andsecondly the rural credit cooperatives lack support from cooperated economic activities for along time and thus demand government-oriented behaviors. The rural credit cooperativestherefore face the double reform goals: policy reform and benefits reform.
Chapter4: Analysis of the double reform goals of management system in rural creditcooperatives. Double reform goals of rural credit cooperatives' management system areexplored, e.g., the credit-loan-assisted agriculture policy goal, and the sustainabledevelopment benefit goal. By using VAR Model, credit-loan-assisted agriculture policy goalis further discussed, and it is found that credit-loan-assisted agriculture takes slight impact onagricultural economy development, thus it is necessary to improve the efficiency ofsupporting agriculture by credit loan. At the same time, the sustainable development benefitgoal is also analyzed theoretically and it is suggested to eliminate bad assets and build ruralcredit cooperatives into multi-form shareholding commercial financial institutions.
Chapter5: Shareholding system reform in rural credit cooperatives. Incorporatingdisputes on ownership reform of rural credit cooperatives, it is argued in this paper thatinvolvement from cooperative system to shareholding cooperative system and finally toshareholding system is in line with the development path of modern commerce and finance.Investor behavior-based shareholding system reform equilibrium analysis shows that thecooperative value of stock right and the synergies of shareholders' contribution restrict theresult of shareholding system reform of rural credit cooperatives, resulting in separatingequilibrium in the financial institution market of rural credit cooperatives.
Chapter6: Corporate governance structure perfection evaluation in rural creditcooperatives. Based on the organization structuring, rights and duties structure andmanagement environment, Probit model was used to analyze the corporate governancestructure of the sample rural credit cooperatives. The result shows that democraticmanagement of staff member; internal personnel control and HR management are moreinfluential to the corporate governance structure, wherein the improvement of corporategovernance structure needs to focusing on clearly specification of the staff, clerks and seniormanagers' rights and duties.
Chapter7: The optimization of the management system in rural credit cooperatives.Looking through the management system of rural credit cooperatives at town, county and provincial levels, it is believed that the present township rural credit cooperatives arelow-efficient, while the county rural credit cooperatives meet the problem of upward shift ofdecision making, provincial rural credit cooperatives confront with the problem of unclearpositioning of management power and functions. The management system that provincialgovernment manages rural credit cooperatives at county provincial levels that further managethe grassroots institutions is of great reference value since it is the most orderly. Finally it isput forward that some changes should be made on the regulation of rural credit cooperativesby China Banking Regulatory Commission which, though has such rights, is free from anyresponsibilities, while Provincial Credit Cooperatives should be encouraged to fulfillindustrial self-discipline functions.
Chapter8: Evaluation of pluralistic reform pattern and regional differences in rural creditcooperatives. In combination with the policies on reform patterns of rural credit cooperatives,it is believed the anticipation of shifting rural credit cooperatives into rural commercial banksor rural cooperative banks may probably be an unrealistic illusion, and the unified corporatemode is still feasible. Referring to the development path of shareholding system reform ofrural credit cooperatives, this study performs factor analysis and clustering analysis of thesample rural credit cooperatives in Shaanxi Province. Accordingly the following conclusion isdrawn: the imbalance of economic development is significantly affecting the distribution ofthe three reform modes of rural credit cooperatives.
Chapter9: Policy recommendations for deepening the reform of management system inrural credit cooperatives. Based on summarization of the previous paragraphs, some policyrecommendations for deepening the management system of rural credit cooperatives areproposed: optimizing the rural financial ecosystem, building diversified rural financialmarkets, improving government's policy supports, enhancing the governments' management,and promoting constitution of cooperative financial rules and regulations.
本文通过分析国外信用合作组织管理体制的典型经验以及中国农村信用合作社管理体制改革的历史，从横向与纵向两方面提炼当前农村信用合作社的双重改革目标，由此展开对双重改革目标实现方式的探讨：微观角度探讨股份制产权改革和法人治理结构完善；中观角度探讨管理系统优化；宏观角度探讨多元改革模式及地区差异评价。最后提出深化农村信用合作社管理体制改革的政策建议。
各章主要内容如下：
第一章导论。说明本文的研究背景、选题意义；提出本文的研究思路及基本的研究方法；概括国内外相关研究动态综述，提出论文的可能创新之处。
第二章信用合作组织管理体制的国际经验及借鉴。通过对德国、美国、法国、日本等国家信用合作组织管理体制的考察，得出实践中应明确中央和地方政府对农村信用合作社管理与服务的角色定位，建立国家政策扶持和监管下的省域农村合作金融管理框架，着力促进农村信用合作社多样化发展等基本观点。
第三章中国农村信用合作社管理体制改革历程。通过历史回顾，总结农村信用合作社管理体制改革的政府主导性。提出政府主导行为一方面来自政府汲取农村资金、防范金融风险的需要，另一方面来自农村信用合作社长期缺乏合作制经济主体的支持而生成政府主导行为需求。农村信用合作社因此面临政策目标和效益目标这双重改革目标。
第四章中国农村信用合作社管理体制双重改革目标分析。探讨农村信用合作社管理体制的双重改革目标：信贷支农政策目标、可持续发展效益目标。运用VAR模型探讨信贷支农改革目标，发现支农贷款对农业经济发展的影响相对较弱，应加大信贷支农效率；理论分析可持续发展改革目标，提出应着力化解不良资产，进而把农村信用合作社建设成多形式股份制商业金融机构。
第五章中国农村信用合作社股份制产权改革。结合农村信用合作社产权改革的争议，认为在制度安排上，合作制向股份合作制进化、股份合作制向股份制进化符合现代商业金融的发展路径。基于出资者行为的股份制产权改革均衡分析表明，合作制股权价值和股东出资收益的协同作用制约着农村信用合作社股份制产权改革的结果，产生农村合作金融机构市场分离均衡。
第六章中国农村信用合作社法人治理结构完善。基于机构设置、权责结构和管理环境等影响因素，运用Probit模型分两阶段计量分析样本农村信用合作社法人治理结构。结果显示：社员民主管理、内部人控制和人力资源管理对农村信用合作社法人治理结构的影响较大，法人治理结构完善过程中需重点理顺社员、职工、高级管理人员之间的权责关系。
第七章中国农村信用合作社管理系统优化。通过考察农村信用合作社管理体系中乡社式布局、县联社、省联社的现实，认为乡社式布局具有有效性和低效性、县联社使农村信用合作社决策核心上移、省联社管理权和职能定位不明确。而省政府管理县联社和省联社、县联社管理基层社的管理系统有序化程度最高，可供实践借鉴。最后提出需改变银监会对农村信用合作社有权无责的金融监管；应推动省联社行使行业自律职能。
第八章中国农村信用合作社多元改革模式及地区差异评价。结合农村信用合作社改革模式方面的政策，认为农村信用合作社转制为农村合作银行或农村商业银行的“花钱买机制”预期设想往往会落空，县联社统一法人模式仍然可行。结合农村信用合作社股份制产权改革路径，对陕西省样本农村信用合作社进行因子分析和聚类分析，得出结论：经济发展的不平衡性在很大程度上影响着农村信用合作社三种改革模式的布局。
第九章深化农村信用合作社管理体制改革的政策建议。在总结前文的基础上，提出深化农村信用合作社管理体制改革的政策建议：优化农村金融生态、构建多元化农村金融市场、加大政策扶持力度、改善政府管理方式、推进合作金融法规建设。
Since2003, in line with the principles of rationalization, standardization andcommercialization, rural credit cooperatives have been managed by the local government inorder to optimize the initial state of its operation and improve the interior and exteriororganization environments. This reform policy has been fulfilled and some primaryachievements have been accomplished. Yet many problems are displayed such as lackingspecific objective for management system reform of China's rural credit cooperatives,complicated equity organization structure, formalization of corporate governance structure,disorderliness in management system, and simplicity in reform mode, so it is urgent toimprove the management system reform of China's rural credit cooperatives.
Through analyzing the typical experience in management system of credit cooperativeorganizations in foreign countries, and the management system reform history of China’s ruralcredit cooperative, the double goals of such reform are extracted vertically and horizontally,and then the methods of actualizing the double reform goals are discussed: includingeconomic analysis of the shareholding system reform and empirical analysis of corporategovernance of rural credit cooperatives from a micro-perspective; structural analysis ofmanagement system from a medium perspective; and analysis of pluralistic reform patternand regional differences from a macro perspective. Finally, some policy recommendations aremade to deepen the reform of the management system of rural credit cooperatives.
This paper consists of the following chapters:
Chapter1: Introduction. This chapter introduces the research background andsignificance, brings forward the research thread and main research methods, reviews thedomestic and foreign research literature and suggests the possible innovations of this paper.
Chapter2: International experience in management system of credit cooperativeorganizations. Through analysis of the management system of credit cooperativeorganizations in Germany, the United States, France, Japan and other countries, it isconcluded that the central government and local governments should clearly understand theirroles in managing and serving the rural credit cooperatives. At the same time, it is proposed toestablish a financial management framework of provincial rural credit cooperatives with thesupport and supervision of national policies, and to construct diversified regionaldevelopment patterns of rural credit cooperatives.
Chapter3: The reform course of management system in rural credit cooperatives.Through reviewing the history, the government’s orientation in management system reform ofrural credit cooperatives is summarized. It is argued that the motivation ofgovernment-oriented reform of rural credit cooperative can be ascribed to two reasons: firstlyit is required by government's absorption of rural capital and financial risk prevention, andsecondly the rural credit cooperatives lack support from cooperated economic activities for along time and thus demand government-oriented behaviors. The rural credit cooperativestherefore face the double reform goals: policy reform and benefits reform.
Chapter4: Analysis of the double reform goals of management system in rural creditcooperatives. Double reform goals of rural credit cooperatives' management system areexplored, e.g., the credit-loan-assisted agriculture policy goal, and the sustainabledevelopment benefit goal. By using VAR Model, credit-loan-assisted agriculture policy goalis further discussed, and it is found that credit-loan-assisted agriculture takes slight impact onagricultural economy development, thus it is necessary to improve the efficiency ofsupporting agriculture by credit loan. At the same time, the sustainable development benefitgoal is also analyzed theoretically and it is suggested to eliminate bad assets and build ruralcredit cooperatives into multi-form shareholding commercial financial institutions.
Chapter5: Shareholding system reform in rural credit cooperatives. Incorporatingdisputes on ownership reform of rural credit cooperatives, it is argued in this paper thatinvolvement from cooperative system to shareholding cooperative system and finally toshareholding system is in line with the development path of modern commerce and finance.Investor behavior-based shareholding system reform equilibrium analysis shows that thecooperative value of stock right and the synergies of shareholders' contribution restrict theresult of shareholding system reform of rural credit cooperatives, resulting in separatingequilibrium in the financial institution market of rural credit cooperatives.
Chapter6: Corporate governance structure perfection evaluation in rural creditcooperatives. Based on the organization structuring, rights and duties structure andmanagement environment, Probit model was used to analyze the corporate governancestructure of the sample rural credit cooperatives. The result shows that democraticmanagement of staff member; internal personnel control and HR management are moreinfluential to the corporate governance structure, wherein the improvement of corporategovernance structure needs to focusing on clearly specification of the staff, clerks and seniormanagers' rights and duties.
Chapter7: The optimization of the management system in rural credit cooperatives.Looking through the management system of rural credit cooperatives at town, county and provincial levels, it is believed that the present township rural credit cooperatives arelow-efficient, while the county rural credit cooperatives meet the problem of upward shift ofdecision making, provincial rural credit cooperatives confront with the problem of unclearpositioning of management power and functions. The management system that provincialgovernment manages rural credit cooperatives at county provincial levels that further managethe grassroots institutions is of great reference value since it is the most orderly. Finally it isput forward that some changes should be made on the regulation of rural credit cooperativesby China Banking Regulatory Commission which, though has such rights, is free from anyresponsibilities, while Provincial Credit Cooperatives should be encouraged to fulfillindustrial self-discipline functions.
Chapter8: Evaluation of pluralistic reform pattern and regional differences in rural creditcooperatives. In combination with the policies on reform patterns of rural credit cooperatives,it is believed the anticipation of shifting rural credit cooperatives into rural commercial banksor rural cooperative banks may probably be an unrealistic illusion, and the unified corporatemode is still feasible. Referring to the development path of shareholding system reform ofrural credit cooperatives, this study performs factor analysis and clustering analysis of thesample rural credit cooperatives in Shaanxi Province. Accordingly the following conclusion isdrawn: the imbalance of economic development is significantly affecting the distribution ofthe three reform modes of rural credit cooperatives.
Chapter9: Policy recommendations for deepening the reform of management system inrural credit cooperatives. Based on summarization of the previous paragraphs, some policyrecommendations for deepening the management system of rural credit cooperatives areproposed: optimizing the rural financial ecosystem, building diversified rural financialmarkets, improving government's policy supports, enhancing the governments' management,and promoting constitution of cooperative financial rules and regulations.
引文
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