均等化目标下农村基本公共服务制度创新研究
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摘要
基本公共服务均等化是保障民生的重要制度基础。在中国当前基本公共服务体系中,无论是从城乡两极看还是从东部与中西部两极看,薄弱落后的一极都在农村。“农村基本公共服务问题已经成为城乡协调发展、区域协调发展和经济社会协调发展的三大全局问题的矛盾汇集点。”以农村基本公共服务体系建设为重点和突破口,实现基本公共服务均等化成为破解上述难题的“万能钥匙”,也是理性政府的必然战略选择。在中国经济持续平稳增长和农村基本公共服务需求全面快速释放的背景下,基本公共服务均等化已经具备了现实可行性和必要性。
本项研究以均等化为视角全面审视中国基本公共服务体系及其非均等化现象,以新制度经济学为理论工具深入分析中国基本公共服务非均等暨农村基本公共服务薄弱落后的根源及影响因素,以农村基本公共服务制度创新为依托努力探索基本公共服务均等化的制度解。为此,本文按照以下篇章和逻辑线索展开:第一章简要介绍均等化目标下农村基本公共服务制度创新的研究背景、意义和国内外研究现状,在此基础上界定论文所研究的问题及相关概念,说明研究思路、研究内容、研究目标和研究方法及创新与不足。第二章阐述研究所需要的理论基础,包括福利经济学、农业经济学、公共经济学、新制度经济学中的相关理论,为研究提供理论分析工具。第三章分析中国基本公共服务体系的历史与现状,着重从理论上说明以下观点:中国基本公共服务体系存在的最大问题是城乡间、区域间横向供给不平等;中国农村基本公共服务体系存在的最大问题是纵向供求的不均衡;横向供给不平等是纵向供求非均衡的重要原因,二者存在密切的因果关系。这一章的主要作用是引出问题。第四章对中国基本公共服务的非均等进行实证研究,以确凿的统计数据和详实的调研案例说明生活性基本公共服务在城乡间和生产性基本公共服务在区域间供给的不平等以及农村基本公共服务体系内部纵向供求间的非均衡,并且通过这种实证研究揭示基本公共服务非均等的实质即农村基本公共服务的薄弱落后。这一章的主要作用是证明非均等的存在及其实质,并对全文起到承上启下作用,为后文转入农村基本公共服务研究提供支撑。第五章是第四章的逻辑延伸,主要分析中国基本公共服务非均等暨农村基本公共服务薄弱落后的根源及影响因素,说明中国基本公共服务非均等的根源在于初始制度安排的不合理性和改革开放后中国农村基本公共服务体系制度创新的滞后性,其影响因素在于制度环境诸因素和制度变迁诸因素。第五章的作用是为创新农村基本公共服务制度寻找处方。第六章介绍国外农村基本公共服务制度演进的一般规律性,为创新农村基本公共服务制度提供“他山之石”。第七章是全文的逻辑终点,是在前六章内容基础上针对中国基本公共服务非均等及其根源、影响因素提出的创新农村基本公共服务制度、实现基本公共服务均等化的制度解。
通过上述章节的安排,本文主要阐明以下观点:第一,基本公共服务非均等包括城乡间、区域间横向供给不平等和农村基本公共服务纵向供求非均衡,这两个方面有着密切的因果关系,是不可分割的;第二,人的基本公共服务需求是一致的,供给平等和供求均衡意义上的均等是可以实现的;第三,中国基本公共服务非均等的共性是农村基本公共服务的薄弱落后,其实质是对农民的不公平,实现基本公共服务均等化必须以农村基本公共服务为重点和突破口;第四,中国基本公共服务非均等的根源在于改革开放后农村基本公共服务体系没有发生实质性制度创新;第五,农村基本公共服务供给制度创新的关键在于政府供给制度创新,必须建立中央政府、地方政府和受益人三方承担“共同而有区别”的责任机制,实行固定出资和弹性出资相结合的成本分摊机制,避免“平均化陷阱”,使每一责任主体对其责任人提供的服务都是平等的,不同责任主体对同一责任人提供的“叠加服务”相对于其需求是无限接近均衡的。
Equalization of basic public services is an important institutional basis to protect the people’s livelihood. In China's current system of basic public services, there is a drastic contrast and divergence between the urban and rural areas as well as between the eastern and western regions. The very weak and backward pole is in the rural areas. "Basic public service in the rural areas has become an essential factor that affects the city-and-countryside coordinated development, regional coordinated development and economy-and-society coordinated development." Take rural basic public service system construction as a focus and priority to achieve equalization of basic public services has become a all-purpose key to the above-mentioned problems, and it should be an inevitable strategic choice of a rational government. In the context of China's sustainable and steady economic growth and the comprehensive and quick release of demand for basic public services in rural areas, equalization of basic public services turn out to be feasible and necessary.
This study takes a comprehensive review of China’s basic public service system and its non-equalization phenomenon from the perspective of equalization, make an in-depth analysis of the roots and influencing factors for China's non-equalization of basic public services and explore the reasons for the weakness and backwardness in rural public services .Taking new institutional innovation as a theoretical tool, this study strives to explore the solutions to equalization of basic public services with the system innovation of rural basic public services for backing. For this end, contents of the paper are presented in the following logical sequence. The first chapter briefly describes the research background, significance and present status at home and abroad. On the foundation of the above, the research problems and related concepts are defined and ideas and main contents are explained, research objectives and research methods, innovations and shortcomings are presented. The second chapter elaborates the theoretical basis for the research to need, including the relevant theories in welfare economics, agricultural economics, public economics, new institutional economics, in order to provide a tool for theoretical analysis in the research. Chapter III makes an analysis of the history and current status of China's basic public service system, focusing on the following viewpoints from the theoretical perspective: the biggest problem in China’s basic public service system is the horizontal supply inequality between city and countryside, between one region and another; the greatest problem in rural basic public service system of China is the vertical imbalance of supply and demand; horizontal supply inequality is an important reason for vertical non-equilibrium of supply and demand. There is a close causal relationship between the two. The main role of this chapter is to draw forth the problem. Chapter IV conducts empirical research of the non-equalization of Chinese basic public services to illustrate horizontal inequality of basic public services supply concerning people’s daily life between the urban and rural areas and that of the basic public services concerning production between regions and the vertical non-equilibrium between supply and demand in rural basic public services through precise statistical data and detailed description of daily life cases. Through this empirical study, this paper reveals the essence of non-equalization of basic public services, which is the weakness and backwardness of basic public services in rural areas. This chapter's main role is to prove the existence and substance of non-equalization, and play a full role of linking the preceding with the following in order to provide support for the post-study of basic public services in rural areas. Chapter V is a logical extension of the fourth chapter, mainly analyzing the roots and influencing factors of the non-equalization of China's basic public services and weakness and backwardness, indicating the roots of non-equalization of basic public services in China lies in the irrationality of the initial institutional arrangements and the lag of institutional innovation in the rural basic public services system since reform and opening up, its affecting factors are the institutional environmental factors and institutional innovational factors. Chapter V plays the role of institutional innovation in rural areas of basic public service system, prescribing an approach to the existing problems. Chapter VI describes the general course and laws of the evolution of the basic public service system in rural areas abroad for the institution innovation of basic public services in rural areas for reference. Chapter VII is the logical end of the paper. On the basis of the previous six chapters, in view of the roots and influencing factors of the non-equalization of basic public services in China, the author puts forward his view points. That is, we should innovate basic public services system in rural areas in order to achieve equalization of basic public services.
Through the Arrangements of above sections, this article attempts to present and clarify the following points: First, the non-equalization of basic public services involves horizontal supply inequalities between urban and rural areas, vertical non-equalization of supply and demand between regions. These two aspects, with closely cause-effect relationship, are indivisible; second, people's basic demand for public services is the same. The equalization of supply and demand can be achieved; third, non-equalization of China's basic public services, in essence, lies in the weakness and backwardness of basic public services in rural areas. To achieve the equalization of basic public services, we must take rural basic public services as focus and priority of our work for a breakthrough; Fourth, the root cause for non-equalization of China's basic public services lies in the fact that since reform and opening up China's basic public service system in rural areas has not undergone any substantial institutional innovation; fifth, the key to institutional innovation of rural basic public services is to innovate the Government supply system. To achieve it, we must establish the tripartite responsibility mechanisms between central government, local government and beneficiaries, assuming the "common but differentiated" responsibilities. Meanwhile, we must carry out the cost-sharing mechanisms, combining fixed funding and flexible funding to avoid the trap of equalitarianism, so that the services provided by each of the responsibility entity for its responsible person are equal, and the "added services" provided by different responsibility entities for the same responsible person is infinitely close to equalization relative to its demand.
本项研究以均等化为视角全面审视中国基本公共服务体系及其非均等化现象,以新制度经济学为理论工具深入分析中国基本公共服务非均等暨农村基本公共服务薄弱落后的根源及影响因素,以农村基本公共服务制度创新为依托努力探索基本公共服务均等化的制度解。为此,本文按照以下篇章和逻辑线索展开:第一章简要介绍均等化目标下农村基本公共服务制度创新的研究背景、意义和国内外研究现状,在此基础上界定论文所研究的问题及相关概念,说明研究思路、研究内容、研究目标和研究方法及创新与不足。第二章阐述研究所需要的理论基础,包括福利经济学、农业经济学、公共经济学、新制度经济学中的相关理论,为研究提供理论分析工具。第三章分析中国基本公共服务体系的历史与现状,着重从理论上说明以下观点:中国基本公共服务体系存在的最大问题是城乡间、区域间横向供给不平等;中国农村基本公共服务体系存在的最大问题是纵向供求的不均衡;横向供给不平等是纵向供求非均衡的重要原因,二者存在密切的因果关系。这一章的主要作用是引出问题。第四章对中国基本公共服务的非均等进行实证研究,以确凿的统计数据和详实的调研案例说明生活性基本公共服务在城乡间和生产性基本公共服务在区域间供给的不平等以及农村基本公共服务体系内部纵向供求间的非均衡,并且通过这种实证研究揭示基本公共服务非均等的实质即农村基本公共服务的薄弱落后。这一章的主要作用是证明非均等的存在及其实质,并对全文起到承上启下作用,为后文转入农村基本公共服务研究提供支撑。第五章是第四章的逻辑延伸,主要分析中国基本公共服务非均等暨农村基本公共服务薄弱落后的根源及影响因素,说明中国基本公共服务非均等的根源在于初始制度安排的不合理性和改革开放后中国农村基本公共服务体系制度创新的滞后性,其影响因素在于制度环境诸因素和制度变迁诸因素。第五章的作用是为创新农村基本公共服务制度寻找处方。第六章介绍国外农村基本公共服务制度演进的一般规律性,为创新农村基本公共服务制度提供“他山之石”。第七章是全文的逻辑终点,是在前六章内容基础上针对中国基本公共服务非均等及其根源、影响因素提出的创新农村基本公共服务制度、实现基本公共服务均等化的制度解。
通过上述章节的安排,本文主要阐明以下观点:第一,基本公共服务非均等包括城乡间、区域间横向供给不平等和农村基本公共服务纵向供求非均衡,这两个方面有着密切的因果关系,是不可分割的;第二,人的基本公共服务需求是一致的,供给平等和供求均衡意义上的均等是可以实现的;第三,中国基本公共服务非均等的共性是农村基本公共服务的薄弱落后,其实质是对农民的不公平,实现基本公共服务均等化必须以农村基本公共服务为重点和突破口;第四,中国基本公共服务非均等的根源在于改革开放后农村基本公共服务体系没有发生实质性制度创新;第五,农村基本公共服务供给制度创新的关键在于政府供给制度创新,必须建立中央政府、地方政府和受益人三方承担“共同而有区别”的责任机制,实行固定出资和弹性出资相结合的成本分摊机制,避免“平均化陷阱”,使每一责任主体对其责任人提供的服务都是平等的,不同责任主体对同一责任人提供的“叠加服务”相对于其需求是无限接近均衡的。
Equalization of basic public services is an important institutional basis to protect the people’s livelihood. In China's current system of basic public services, there is a drastic contrast and divergence between the urban and rural areas as well as between the eastern and western regions. The very weak and backward pole is in the rural areas. "Basic public service in the rural areas has become an essential factor that affects the city-and-countryside coordinated development, regional coordinated development and economy-and-society coordinated development." Take rural basic public service system construction as a focus and priority to achieve equalization of basic public services has become a all-purpose key to the above-mentioned problems, and it should be an inevitable strategic choice of a rational government. In the context of China's sustainable and steady economic growth and the comprehensive and quick release of demand for basic public services in rural areas, equalization of basic public services turn out to be feasible and necessary.
This study takes a comprehensive review of China’s basic public service system and its non-equalization phenomenon from the perspective of equalization, make an in-depth analysis of the roots and influencing factors for China's non-equalization of basic public services and explore the reasons for the weakness and backwardness in rural public services .Taking new institutional innovation as a theoretical tool, this study strives to explore the solutions to equalization of basic public services with the system innovation of rural basic public services for backing. For this end, contents of the paper are presented in the following logical sequence. The first chapter briefly describes the research background, significance and present status at home and abroad. On the foundation of the above, the research problems and related concepts are defined and ideas and main contents are explained, research objectives and research methods, innovations and shortcomings are presented. The second chapter elaborates the theoretical basis for the research to need, including the relevant theories in welfare economics, agricultural economics, public economics, new institutional economics, in order to provide a tool for theoretical analysis in the research. Chapter III makes an analysis of the history and current status of China's basic public service system, focusing on the following viewpoints from the theoretical perspective: the biggest problem in China’s basic public service system is the horizontal supply inequality between city and countryside, between one region and another; the greatest problem in rural basic public service system of China is the vertical imbalance of supply and demand; horizontal supply inequality is an important reason for vertical non-equilibrium of supply and demand. There is a close causal relationship between the two. The main role of this chapter is to draw forth the problem. Chapter IV conducts empirical research of the non-equalization of Chinese basic public services to illustrate horizontal inequality of basic public services supply concerning people’s daily life between the urban and rural areas and that of the basic public services concerning production between regions and the vertical non-equilibrium between supply and demand in rural basic public services through precise statistical data and detailed description of daily life cases. Through this empirical study, this paper reveals the essence of non-equalization of basic public services, which is the weakness and backwardness of basic public services in rural areas. This chapter's main role is to prove the existence and substance of non-equalization, and play a full role of linking the preceding with the following in order to provide support for the post-study of basic public services in rural areas. Chapter V is a logical extension of the fourth chapter, mainly analyzing the roots and influencing factors of the non-equalization of China's basic public services and weakness and backwardness, indicating the roots of non-equalization of basic public services in China lies in the irrationality of the initial institutional arrangements and the lag of institutional innovation in the rural basic public services system since reform and opening up, its affecting factors are the institutional environmental factors and institutional innovational factors. Chapter V plays the role of institutional innovation in rural areas of basic public service system, prescribing an approach to the existing problems. Chapter VI describes the general course and laws of the evolution of the basic public service system in rural areas abroad for the institution innovation of basic public services in rural areas for reference. Chapter VII is the logical end of the paper. On the basis of the previous six chapters, in view of the roots and influencing factors of the non-equalization of basic public services in China, the author puts forward his view points. That is, we should innovate basic public services system in rural areas in order to achieve equalization of basic public services.
Through the Arrangements of above sections, this article attempts to present and clarify the following points: First, the non-equalization of basic public services involves horizontal supply inequalities between urban and rural areas, vertical non-equalization of supply and demand between regions. These two aspects, with closely cause-effect relationship, are indivisible; second, people's basic demand for public services is the same. The equalization of supply and demand can be achieved; third, non-equalization of China's basic public services, in essence, lies in the weakness and backwardness of basic public services in rural areas. To achieve the equalization of basic public services, we must take rural basic public services as focus and priority of our work for a breakthrough; Fourth, the root cause for non-equalization of China's basic public services lies in the fact that since reform and opening up China's basic public service system in rural areas has not undergone any substantial institutional innovation; fifth, the key to institutional innovation of rural basic public services is to innovate the Government supply system. To achieve it, we must establish the tripartite responsibility mechanisms between central government, local government and beneficiaries, assuming the "common but differentiated" responsibilities. Meanwhile, we must carry out the cost-sharing mechanisms, combining fixed funding and flexible funding to avoid the trap of equalitarianism, so that the services provided by each of the responsibility entity for its responsible person are equal, and the "added services" provided by different responsibility entities for the same responsible person is infinitely close to equalization relative to its demand.
引文
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