我国“以工补农”效果及其主体互动整合研究
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摘要
日益严峻的三农问题受到了全社会前所未有的关注,中央出台了一系列诸如免除农业税、发展现代农业、建设新农村等试图彻底改变三农状况的具有划时代意义的支农补农政策。但是,新时期三农问题形势依然严峻,破解三农问题非一日之功,怎样进行“以工补农”也还处在初步的探索之中。面对形势严峻的三农问题,在中央不断加大“以工补农”的力度背景下,本研究从“补农”主体互动整合的角度探讨新时期如何提升“以工补农”的效果。为此,本研究从“以工补农”概念及相关基本问题分析入手,在梳理“以工补农”现有研究和借鉴相关理论的基础上,明确“以工补农”的概念和基本范畴,然后通过对三农问题现状以及“以工补农”运行效果的解析,探讨“以工补农”各主体互动整合状况对运行效果的制约、揭示“以工补农”各主体互动中存在的问题及深层次原因,并以此为基础,研究和设计新时期“以工补农”主体互动整合的基本模式及其实现路径。
(1)探讨和规范“以工补农”的概念及其基本范畴。根据中央政策精神和三农问题的现实状况,结合现有研究和相关理论,对“以工补农”的内涵进行规范。并进一步从什么是“以工补农”,为什么“以工补农”,怎样“以工补农”的角度,对“以工补农”的依据、任务、主体、方法、渠道和主体互动关系等基本范畴进行理论探讨,以奠定全文研究的理论基础。
(2)探讨“以工补农”的基本任务和主要渠道。“以工补农”的基本任务是评价现阶段“以工补农”运行效果的准绳,也是未来继续实施“以工补农”的中心问题。考虑到“以工补农”提出的大背景是三农问题的凸显,论文从三农问题的主要表现入手,解析三农问题的实质,并结合三农问题的严峻形势,探讨“以工补农”的基本任务。在此基础上,根据市场经济中相关行为主体的关联关系,对现阶段“以工补农”的主要渠道进行探讨和梳理,以此为评价“以工补农”运行效果确立基础。
(3)分析现有“以工补农”的运行情况,并评价其实际效果。在对现阶段“以工补农”的主要渠道进行梳理的基础上,将“以工补农”分为政府主导财政直接支农和政府引导市场主体支农,并主要从具体渠道、实施主体、实施方式和具体措施等方面具体分析的每种渠道的运行情况,然后评价其对“以工补农”基本任务所产生的实际效果。
(4)探讨和揭示现阶段“以工补农”主体互动整合存在的问题及其原因。根据现阶段“以工补农”运行效果分析的结果,探讨“以工补农”主体互动整合状况对“补农”效果的制约,并进一步对现阶段“以工补农”主体互动整合存在的具体问题进行解析,然后分析产生这些问题的原因。
(5)研究和设计新时期“以工补农”主体互动整合的基本模式和实现路径。在解析现阶段“以工补农”主体互动整合存在问题及其原因的基础上,根据新时期以及三农问题的特点,在进一步界定新时期“以工补农”的基本思路和应当坚持的基本原则的前提下,对新时期“以工补农”主体互动整合的基本模式进行研究和设计,并根据所设计的基本模式,提出整合各方面力量、实现各主体良性互动的基本路径。
(1)政府主导财政直接支农对增加农民收入效果不明显,而对提高具有农业资源优势的传统农业大省的农业产出有较明显的效果,农村社会发展、医疗卫生、社会保障等领域没有得到足够的支持。研究中运用普通最小二乘回归估计、岭回归估计和主成份估计的方法对财政支农支出和农民收入增长之间的关系进行分析,结果表明财政支农与农民收入之间呈负的偏相关关系,即剔除其他影响农村居民收入要素的影响之后,国家财政用于农业支出基本没有起到促进农民收入增长的效果。运用DEA评价方法对全国不同地区财政支农对农业产出效率的分析,结果表明在传统的农业大省,财政支农的效率相对较高,而农业生产资源匮乏地区,财政支农的效率相对而言也比较低。从对具体投入和实际需求之间的差距分析,表明农村社会发展、医疗卫生、社会保障等领域没有得到足够的支持。
(2)政府引导市场主体支农在培育相关市场主体、增加农民收入、提升农业现代化水平和促进农村经济社会发展方面尽管取得了不小的成绩,但还远不能为三农持续稳定发展提供长效平台,其受益面也受到相当的制约。根据政府具体的扶持和引导措施、涉农金融机构发展和涉农业务开展情况,以及金融机构具体的支农方式和三农的受益情况的分析,表明政府引导金融机构支农在支持粮食收购、大型农业开发项目建设和农村基础设施建设方面起到了重要的作用,但具体对增加农民收入方面的效果不明显。根据政府具体的扶持和引导措施、涉农企业的发展,以及涉农企业具体的支农方式和三农的受益情况的分析,表明政府引导企业支农,在增加农民收入、提升农业现代化水平和繁荣农村经济方面取得了重要的成绩,但主要的问题是企业与三农之间的关系还比较脆弱,存在企业损害三农利益的情况,三农持续发展的长效平台还没有搭建,同时整个的受益面还相当有限。
(3)现阶段“以工补农”主体互动状况从协作缺失和分工偏误两个方面制约了“补农”的总体效果。“以工补农”作为一项涉及众多主体的庞大系统工程,除了投入力度外,由谁来投,通过什么渠道来投,投到什么地方,各类主体在“补农”过程中如何分工、如何配合,即“补农”主体互动的问题也是非常关键的问题。各主体协作缺失制约了三农问题恶性循环的破除,导致了三农利益严重隐性流失,造成城乡差距扩大趋势难以根本扭转。各主体分工偏误导致瓶颈问题得不到解决,有限投入得不到合理配置,以及现有投入难以充分发挥作用。从协作缺失和分工偏误的具体表现来看,在各主体的协作方面,偏重于财政直接支农,对引导市场主体支农重视不够;偏重于引导银行信贷支农,对引导保险支农重视不够;偏重于引导农业产业化企业支农,对引导乡镇企业和中小企业支农重视不够。在各主体的分工方面农业问题较为重视,而农民和农村问题往往被忽视;重视短期和直接问题解决,不重视长期和基础问题解决,重视显性支持,不重视隐性流失问题的解决;在具体的支持对象上,某些对象被过度投入,某些对象被忽视的问题。这些问题与支农多头管理体制与政府偏好有直接的关系。
(4)“以工补农”主体互动整合依赖于对政府和市场主体应当扮演得角色合理定位,而要实现“补农”主体良性互动,就必须完善涉农市场制度以构建互动平台,改革支农管理体制以构建互动关系,规范政府支农行为以确保良性互动。“以工补农”主体互动整合就是根据各主体不同的性质,明确各主体的角色和分工,促进“补农”过程中各主体的良性互动,以实现全社会“补农”力量的整合。政府作为“补农”的责任主体、实施主体、激励和监督主体;主要任务是完善制度、提供公共品、调节外部性、提升农民素质和平抑市场价格剧烈波动。金融机构作为“补农”的实施主体,同时又是市场经营主体,其主要功能是在“补农”过程中提供信贷、保险支持和其他金融服务。企业作为“补农”的实施主体,同时也是市场经营主体,其主要功能是通过商品和要素交易促进农民收入增长、提升农业和农村的现代化水平。要实现“补农”主体互动整合需要完善农村土地流转制度、改革户籍制度和完善农民就业与社会保障制度以构建“补农”主体互动的平台;通过改革政府内部门与部门之间,各级政府之间,政府与市场主体之间的关系以构建互动关系;通过程序化和制度化政府行为以确保“补农”主体良性互动。
(1)概念界定创新。主要是对“以工补农”的内涵提出新的看法。尽管现阶段的“以工补农”与“以农补工”和发达国家的农业支持有重要的联系,但由于“以工补农”和“以农补工”体制背景不同,以及发达国家和我国国情的区别,简单的将“以工补农”视为工业对农业的反哺,视为我国对发达国家农业支持的学习,不符合当前正在实施的“以工补农”的具体情况,也不利于新时期“以工补农”的科学实施。为此,本研究将在评述现有研究和借鉴相关理论的基础上,根据“以工补农”所面临的任务和特殊的体制背景,对“以工补农”做出新的界定。本文认为“以工补农”是三农问题日益严峻和农业在国民经济中比重显著下降的背景下,基于单纯市场机制无法解决三农问题,政府通过市场干预手段和再分配手段,调整国民收入分配格局,促使和推动非农对三农进行的支持和帮助,以促进三农发展。
(2)研究视角创新。主要包括两个方面的视角创新。第一,本研究从整合“补农”主体互动关系的角度探讨现阶段“以工补农”存在的问题,并从这一角度提出提升“以工补农”效果的政策措施。而一般的研究主要从如何加大“补农”的力度,以及怎样投入的角度入手。本研究则着眼于怎样整合“补农”主体互动关系,以使得投入的资源尽可能发挥最大的作用,产生最好的效果。第二,本研究将现阶段“以工补农”划分为政府主导财政直接支农和政府引导市场主体支农两种渠道进行分析。“以工补农”是一个极其复杂而又庞大的实践问题,用什么方法能够全面系统地反映正在进行的“以工补农”实践,是一个新问题。由于“以工补农”实践的庞杂性,容易导致概括的片面性,本研究从政府是“以工补农”第一主体,但又不是唯一实施主体的思路出发,根据政府作用实施渠道将“以工补农”划分为政府直接补农和引导市场主体补农,具有一定的新意。
(3)观点创新。论文的观点主要可能有三个方面的创新。第一,对三农问题的实质,以及“以工补农”的基本任务提出新的观点。对三农问题的正确认识是明确“以工补农”基本任务的前提。三农问题看似简单的概念,由于其问题表现过于庞杂,容易形成片面的认识:或强调农业现代化问题,或强调粮食安全问题,或强调农民收入问题,或强调农村落后问题等等不一而足。本研究立足于三农问题的整体性,从相互关联和相互制约的角度对三农问题进行剖析,从而也将“以工补农”的基本任务定位为一个系统工程,这也为整合全社会“补农”力量提出必要性。第二,对现行“以工补农”存在的问题及其原因提出新的观点。由于本研究是从“补农”主体互动整合的角度来研究“以工补农”的实践,不同于传统的从“补农”力度和如何投入的研究角度,因此对“以工补农”存在的问题及其原因有一些新的观点和结论。第三,对未来怎样提升“以工补农”效果提出新的观点。同样基于研究角度的不同,本研究从如何协调各“补农”主体关系,整合各主体力量,实现各主体良性互动的角度提出提升“以工补农”效果的对策措施。
由于“以工补农”是我国当前正在全面展开和不断深入的伟大社会实践,在本研究的进行过程中和完成之际,新的问题不断产生,新的政策措施不断出台,对于这些新的问题和新的政策措施,本研究未能很好的反映和深入研究,这需要在后续的研究中进一步探讨。
Increasingly serious problem of agriculture has received the unprecedented attention of the whole society; the central authorities issued a series of landmark agricultural policy, such as agricultural tax exemption, the development of modern agriculture, rural areas, attempting to change the status of agriculture. However, the situation of the three agricultural issues in the new period is still grim, to solve these issues takes a long time, how to "subsidizing to agriculture, peasant and country"is also still in the preliminary explored. Faced with the grim situation of the three rural problems, in the background of the central increasing the efforts of "subsidizing and developing agriculture by industry", the study from the point of view of the integration between the main body to probe into how to upgrade the effect of "subsidizing to agriculture, peasant and country"in the new period. Thus, this study starts with the concept of "subsidizing and developing agriculture " and correlative basic issues , on the basis of hackling existing study and relative theory, definituding the concept and basic areas of "subsidizing and developing agriculture by industry", and then by analysising the actuality of the three agricultural issues and the effect of "subsidizing and developing agriculture by industry", to discuss "subsidizing to agriculture, peasant and country"the integration of the main conditions on the operation of the interactive effects of constraints, revealing the the main interaction Problems and deep-rooted causes of the main interaction in "subsidizing and developing agriculture by industry", and on this basis, to research and design the main mode and the realization of path about the main body's interactive integration of "subsidizing to agriculture, peasant and country"in the new period. Firstly, the main research content
In this paper, the following five areas have been researched.
(1)To explore and norm the concept and basic category of "subsidizing and developing agriculture by industry".According to the central policy and the reality of the three agricultural issues, Combination of existing research and relevant theory, to norm the intension of "subsidizing and developing agriculture by industry".And further from the view of what is "subsidizing and developing agriculture by industry"," why to "subsidizing and developing agriculture by industry", how to "subsidizing to agriculture, peasant and country", to discuss the basis, tasks, subjects, methods, channels and the main interaction relationship of "subsidizing and developing agriculture by industry", in order to lay a theoretical foundation for the full text of the study.
(2) Discuss the basic task and the main channel of "subsidizing and developing agriculture by industry". The basic task of "subsidizing to agriculture, peasant and country"is to evaluate the effect of the criterion run of "subsidizing to agriculture, peasant and country"at this stage, it is also central issue of implementing "subsidizing to agriculture, peasant and country"in the future. Taking into account the "subsidizing to agriculture, peasant and country"was made against the background of the highlighted three rural issues, this paper started with the main performance of the three agricultural problems, resolved the substance of the three agricultural issues , combined with the grim situation of the three agricultural issues to discuss the basic task of "subsidizing and developing agriculture by industry". On this basis, according to the relationship of market-related economic actors , discussed and sorted out the main channel of "subsidizing to agriculture, peasant and country"at this stage, in order to establish the basis for evaluating the operating results of "subsidizing and developing agriculture by industry".
(3) Analysis the operation situation of the existing "subsidizing and developing agriculture by industry", and evaluate its practical results. On the basis of sorting out the main channel of "subsidizing and developing agriculture by industry", to classify the " subsidizing and developing agriculture by industry" into the government-led financial markets to support agriculture and the government to guide the main marketer support agriculture,and from the specific channels, the main implementation body, the implementation modes and specific measures and so on , to analysis the operate situation of each channel, and then assess practical results arising from the basic tasks of "subsidizing to agriculture, peasant and country".
(4) To explore and reveal the main problems exsits in"subsidizing to agriculture, peasant and country"integration of the interaction and why at this stage. According to the result of analysis the operation of "subsidizing to agriculture, peasant and country"to explore the constraints of "subsidizing to agriculture, peasant and country"main interactive integration situation that effect to "subsidizing and developing agriculture", and to further analysis the specific issues existed in the main interactive integration of "subsidizing and developing agriculture by industry", and then analyzes the reasons for these problems.
(5) Research and design the basic modes and the realization of paths of the main interactive integration of "subsidizing and developing agriculture by industry"in the new period. Based on analysis the main problems exsits in"subsidizing to agriculture, peasant and country"integration of the interaction and why at this stage, and according to the characteristics of the three agricultural issues, further defined the basic ideas and should adhere to the basic principles of "subsidizing to agriculture, peasant and country",and according to the designed basic pattern, to advance the basic paths of integration of all aspects of power and achieve the positive interaction. between 1 main bodies.
Secondly, the main conclusions and important points.
(1) Government-led agro-financial direct effect of increasing the income of the farmers was not obvious, but to improve the agricultural resources with the traditional advantages of a major agricultural province of agricultural output are more pronounced effect, rural and social development, health, social security and other fields did not receive sufficient support. The reseach estimated that the use of ordinary least-squares regression, ridge regression estimates and the method of principal components is estimated that expenditure on financial support for agriculture and farmers income growth analysis of the relationship between the results show that the fiscal income of the farmers between agriculture and the negative partial correlation relations, that is, excluding other factors affect the income of rural residents after the impact, the state financial expenditure for agriculture has played virtually no growth promoting effect of the income of the farmers. Evaluation of the use of DEA methods on different parts of the country the financial efficiency of agriculture on the agricultural output of the analysis, results showed that the traditional big agricultural province, the efficiency of financial support for agriculture is relatively high, and the lack of resources in agricultural production areas, the relative efficiency of financial support for agriculture terms are also relatively low. Specific input from the actual demand and the gap between analysis, show that the rural and social development, health, social security and other areas did not receive sufficient support.
(2) Government guide the market players support agriculture acquired in spite of not a small achievement in nurturing agriculture-related market players, increase their income, raise the level of agricultural modernization and the promotion of rural economic and social development, but also for agriculture are far from providing long-term sustainable and stable development platform the benefits of constraints has also been considerable.
According to the specific measures of support and guidance, financial institutions, rural development and agriculture-related business, as well as financial institutions, agro-specific manner and the benefit of three agriculture analysis shows that financial institutions, government guidance in support of agro-food acquisition, large-scale agricultural development projects and rural infrastructure has played an important role, but the specific aspects of increasing the effectiveness of the income of the farmers was not obvious. According to the specific measures of support and guidance, the development of agriculture-related enterprises, as well as agriculture-related enterprises of the agro-specific manner and the benefit of agriculture analysis, and demonstrates the Government guide enterprises to support agriculture in order to increase the income of the fanners to enhance the level of agricultural modernization and prosperity of the rural economy has made important achievements, but the main problem is that business and the relationship between agriculture is still relatively fragile, and the existence of damage to agriculture business interests, long-term sustainable development of agriculture has not yet set up the platform, while the entire The surface is also very limited benefit.
(3) The main interaction of "subsidizing to agriculture, peasant and country"affects the overall effects of "support agriculture" from both the collaboration missing and division of labor constraints. "Subsidizing and developing agriculture by industry"as a subject involving a large number of systems engineering, in addition to outside input, who is going to vote, to vote through the channels, where the successful bidder of all kinds of subjects in the "subsidizing and developing agriculture " the process of how the division of labor how to cope with, that is, " Subsidizing and developing agriculture," the main problem of interaction is also a very key issue. Lack of collaboration among the main constraints of the three agricultural problems break the vicious circle, resulting in severe recessive loss of three agricultural interests, resulting in the widening gap between urban and rural areas difficult to fundamentally reverse the trend. Division of the main bottlenecks that lead to bias can not be resolved, not the rational allocation of limited investment, as well as difficult to give full play to the existing role of input. Missing from the collaboration and division of labor bias of the specific performance, in all the main areas of collaboration, focus on direct financial support for agriculture, to guide the market, not the main emphasis on agriculture; emphasis on bank credit to guide agriculture, importance of agriculture to guide the insurance not enough; emphasis on the industrialization of agriculture leading agriculture enterprises, and township enterprises and small and medium-sized guide not placed enough emphasis on agriculture. Division of labor in all the main aspects of the issue of more importance to agriculture, and farmers and rural issues are often ignored; short-term and direct problem solving, do not attach importance to long-term and based on problem solving, attention to explicit support, not the loss of attention to hidden problems; in the support of specific object, some object is over-investment in certain object is ignored. These issues with the multi-management system to support agriculture and the government is directly related to preferences.
(4)The conformity between the main body of "subsidizing and developing agriculture by industry"depends on the the government and the market main body should play a main role in a reasonable position, and theat achieving the aim,it is necessary that improve the rural market system to build an interactive platform; reform the agriculture management system to build an interactive relationship, normative acts of the Government of holding out agriculture to ensure the positive interaction. The conformity between the main body of subsidizing and developing agriculture by industry"acoords the different nature of the subject, definitudes the role promoting the t positive interaction between the main body in the he process of subsidizing and developing agriculture", in order to achieve the integration of the whole society force. Government as the main responsibility body,the implementation body, the main incentive and supervision; its the main task is to improve the system, afford public goods, regulate external, improve quality of farmers and stabilize dramatic fluctuations in market prices. Financial institutions as a implementation body for"subsidizing and developing agriculture ", and it is also the main market operators, and its main function is i providing the support of credit, insurance and other financial services in the process of subsidizing and developing agriculture". Enterprise as a implementation body for"subsidizing and developing agriculture", and the main market operators, its main functions is to promote growth of the income of the farmers and enhance the modernization level of agriculture and the rural through the transaction the goods and elements. To achieve the conformity between the main body of "subsidizing and developing agriculture by industry"needs perfect the circulation system of rural land, reform the household registration system and improve the fanner employment and social security system in order to build a platform for interaction between the main body of subsidizing and developing agriculture by industry"; through the reform the relationship of government departments at all levels, between the Governments, between the Government and market players to build an interactive relationship; through the process and the institutionalization of the government's actions to ensure that the benign interaction between the main body of subsidizing and developing agriculture ".
Thirdly, the main innovation.
(1) The innovation of define the concept. The mainly innovation is toadvance the new view of subsidizing and developing agriculture by industry" . Although"subsidizing and developing agriculture by industry"、"subsidizing and developing industry by agriculture"and the agricultural support in developed countries have an important relation at this stage, but because of the different background of subsidizing and developing agriculture by industry"、"subsidizing and developing industry by agriculture",as well as the different national conditions between developed countries and China, simply figuring subsidizing and developing agriculture by industry as the industry feeds agriculture, and our nation learning of the agricultural support in developed countries, not being in line with the current complexion implemented subsidizing and developing agriculture by industry, and not being conducive to the scienced implementation of subsidizing and developing agriculture by industry. Thus, the comments of this study will draw on existing research and theory, based on the facing task system and the special background of subsidizing and developing agriculture by industry, making the new definition for"subsidizing and developing agriculture by industry". This article holds that the "subsidizing and developing agriculture by industry"is the support and help that in the background of three agricultural problems are increasingly serious and agriculture proportion in the national economy is significantly droping, based on market mechanisms alone can not solve the issue of agriculture, the Government had adopted the means of market intervention and the redistribution, adjusting the structure of national income distribution, encouraging and promoting the development of agriculture.
(2) The innovation of perspective. There are two aspects of innovation perspective. First, this study explores the problems of "subsidizing to agriculture, peasant and country"from the perspective of interaction between the main body of subsidizing and developing agriculture", and put forwaed the policy measures of improving the effect of "subsidizing to agriculture, peasant and country"from this point of view. The general study starts with how to step up from the "premium agricultural" efforts, as well as how to put into. This study is focused on how to integrate interactive relationship between the main body of "subsidizing and developing agriculture", in order to make the the resources exert maximum impact as far as possible, producing the best results. Second, this study will divide the current "subsidizing to agriculture, peasant and country"into two departs, a direct government-led financial supporting agriculture and the government to guide the market to support agriculture. "subsidizing to agriculture, peasant and country"is an extremely complex and large practical problems, how to reflect the ongoing practice of "subsidizing to agriculture, peasant and country" in a comprehensive and systematic way is a new problem. As a result of the complex nature of practice of "subsidizing and developing agriculture by industry", easily leading to a general one-sidedness, the point of view of this study is that the government is the first main body, but not the only implement body, according to the role of the implementation of the channels divide the "subsidizing to agriculture, peasant and country"into direct government-led financi al supporting agriculture and the government to guide the market to support agriculture ,this is a innovation.
(3) The innovation of viewpoint. The main point of view papers may be have three aspects of innovation. First, the new point of view of the essence of the problems of agriculture, as well as the basic task of "subsidizing and developing agriculture by industry". The promise of definituding the basic task of "subsidizing to agriculture, peasant and country"is corrent acquaintanceship of the probleme of three rural . The problem of three rural seems to be simple, but as a result of their problems are too complex, easy to form a one-sided understanding:or stressed agricultural modernization, or stressed the issue of food security, or stressed the income of the farmers, or emphasized different problems in rural areas and backward adequate. In this study, based on the integrity of the issues of three rural, analysed the rural issues from the interrelated and mutually constraining, which make the basic tasks of "subsidizing to agriculture, peasant and country"as a systematic project. Secondly, putting forward new problems and the reasons based on the existing "subsidizing and developing agriculture by industry". As a result of this study explores the problems of "subsidizing to agriculture, peasant and country"from the perspective of interaction between the main body of "subsidizing and developing agriculture ",different from the traditional "subsidizing and developing agriculture" efforts and how to research point of input, so the ""subsidizing and developing agriculture by industry"" and the reasons for the problems there are some new ideas and conclusions. Thirdly, how to upgrade in the future ""subsidizing and developing agriculture by industry", the effect of a new point of view. The same research-based perspective of the different from this study how to coordinate the various ""subsidizing and developing agriculture " the main relationship, the main force to integrate and realize the benign interaction between the point of view of the main initiatives to improve the "agricultural workers make up" effect of countermeasures.
As a result of the "subsidizing to agriculture, peasant and country"is the currently great deepening social practice in our country in the course of the completion of this study, the new problems continually arise, new policies and measures to keep out, for these new problems and new policies and measures, this study failed to reflect the very good and in-depth study, which need to follow-up study to explore further.
(1)探讨和规范“以工补农”的概念及其基本范畴。根据中央政策精神和三农问题的现实状况,结合现有研究和相关理论,对“以工补农”的内涵进行规范。并进一步从什么是“以工补农”,为什么“以工补农”,怎样“以工补农”的角度,对“以工补农”的依据、任务、主体、方法、渠道和主体互动关系等基本范畴进行理论探讨,以奠定全文研究的理论基础。
(2)探讨“以工补农”的基本任务和主要渠道。“以工补农”的基本任务是评价现阶段“以工补农”运行效果的准绳,也是未来继续实施“以工补农”的中心问题。考虑到“以工补农”提出的大背景是三农问题的凸显,论文从三农问题的主要表现入手,解析三农问题的实质,并结合三农问题的严峻形势,探讨“以工补农”的基本任务。在此基础上,根据市场经济中相关行为主体的关联关系,对现阶段“以工补农”的主要渠道进行探讨和梳理,以此为评价“以工补农”运行效果确立基础。
(3)分析现有“以工补农”的运行情况,并评价其实际效果。在对现阶段“以工补农”的主要渠道进行梳理的基础上,将“以工补农”分为政府主导财政直接支农和政府引导市场主体支农,并主要从具体渠道、实施主体、实施方式和具体措施等方面具体分析的每种渠道的运行情况,然后评价其对“以工补农”基本任务所产生的实际效果。
(4)探讨和揭示现阶段“以工补农”主体互动整合存在的问题及其原因。根据现阶段“以工补农”运行效果分析的结果,探讨“以工补农”主体互动整合状况对“补农”效果的制约,并进一步对现阶段“以工补农”主体互动整合存在的具体问题进行解析,然后分析产生这些问题的原因。
(5)研究和设计新时期“以工补农”主体互动整合的基本模式和实现路径。在解析现阶段“以工补农”主体互动整合存在问题及其原因的基础上,根据新时期以及三农问题的特点,在进一步界定新时期“以工补农”的基本思路和应当坚持的基本原则的前提下,对新时期“以工补农”主体互动整合的基本模式进行研究和设计,并根据所设计的基本模式,提出整合各方面力量、实现各主体良性互动的基本路径。
(1)政府主导财政直接支农对增加农民收入效果不明显,而对提高具有农业资源优势的传统农业大省的农业产出有较明显的效果,农村社会发展、医疗卫生、社会保障等领域没有得到足够的支持。研究中运用普通最小二乘回归估计、岭回归估计和主成份估计的方法对财政支农支出和农民收入增长之间的关系进行分析,结果表明财政支农与农民收入之间呈负的偏相关关系,即剔除其他影响农村居民收入要素的影响之后,国家财政用于农业支出基本没有起到促进农民收入增长的效果。运用DEA评价方法对全国不同地区财政支农对农业产出效率的分析,结果表明在传统的农业大省,财政支农的效率相对较高,而农业生产资源匮乏地区,财政支农的效率相对而言也比较低。从对具体投入和实际需求之间的差距分析,表明农村社会发展、医疗卫生、社会保障等领域没有得到足够的支持。
(2)政府引导市场主体支农在培育相关市场主体、增加农民收入、提升农业现代化水平和促进农村经济社会发展方面尽管取得了不小的成绩,但还远不能为三农持续稳定发展提供长效平台,其受益面也受到相当的制约。根据政府具体的扶持和引导措施、涉农金融机构发展和涉农业务开展情况,以及金融机构具体的支农方式和三农的受益情况的分析,表明政府引导金融机构支农在支持粮食收购、大型农业开发项目建设和农村基础设施建设方面起到了重要的作用,但具体对增加农民收入方面的效果不明显。根据政府具体的扶持和引导措施、涉农企业的发展,以及涉农企业具体的支农方式和三农的受益情况的分析,表明政府引导企业支农,在增加农民收入、提升农业现代化水平和繁荣农村经济方面取得了重要的成绩,但主要的问题是企业与三农之间的关系还比较脆弱,存在企业损害三农利益的情况,三农持续发展的长效平台还没有搭建,同时整个的受益面还相当有限。
(3)现阶段“以工补农”主体互动状况从协作缺失和分工偏误两个方面制约了“补农”的总体效果。“以工补农”作为一项涉及众多主体的庞大系统工程,除了投入力度外,由谁来投,通过什么渠道来投,投到什么地方,各类主体在“补农”过程中如何分工、如何配合,即“补农”主体互动的问题也是非常关键的问题。各主体协作缺失制约了三农问题恶性循环的破除,导致了三农利益严重隐性流失,造成城乡差距扩大趋势难以根本扭转。各主体分工偏误导致瓶颈问题得不到解决,有限投入得不到合理配置,以及现有投入难以充分发挥作用。从协作缺失和分工偏误的具体表现来看,在各主体的协作方面,偏重于财政直接支农,对引导市场主体支农重视不够;偏重于引导银行信贷支农,对引导保险支农重视不够;偏重于引导农业产业化企业支农,对引导乡镇企业和中小企业支农重视不够。在各主体的分工方面农业问题较为重视,而农民和农村问题往往被忽视;重视短期和直接问题解决,不重视长期和基础问题解决,重视显性支持,不重视隐性流失问题的解决;在具体的支持对象上,某些对象被过度投入,某些对象被忽视的问题。这些问题与支农多头管理体制与政府偏好有直接的关系。
(4)“以工补农”主体互动整合依赖于对政府和市场主体应当扮演得角色合理定位,而要实现“补农”主体良性互动,就必须完善涉农市场制度以构建互动平台,改革支农管理体制以构建互动关系,规范政府支农行为以确保良性互动。“以工补农”主体互动整合就是根据各主体不同的性质,明确各主体的角色和分工,促进“补农”过程中各主体的良性互动,以实现全社会“补农”力量的整合。政府作为“补农”的责任主体、实施主体、激励和监督主体;主要任务是完善制度、提供公共品、调节外部性、提升农民素质和平抑市场价格剧烈波动。金融机构作为“补农”的实施主体,同时又是市场经营主体,其主要功能是在“补农”过程中提供信贷、保险支持和其他金融服务。企业作为“补农”的实施主体,同时也是市场经营主体,其主要功能是通过商品和要素交易促进农民收入增长、提升农业和农村的现代化水平。要实现“补农”主体互动整合需要完善农村土地流转制度、改革户籍制度和完善农民就业与社会保障制度以构建“补农”主体互动的平台;通过改革政府内部门与部门之间,各级政府之间,政府与市场主体之间的关系以构建互动关系;通过程序化和制度化政府行为以确保“补农”主体良性互动。
(1)概念界定创新。主要是对“以工补农”的内涵提出新的看法。尽管现阶段的“以工补农”与“以农补工”和发达国家的农业支持有重要的联系,但由于“以工补农”和“以农补工”体制背景不同,以及发达国家和我国国情的区别,简单的将“以工补农”视为工业对农业的反哺,视为我国对发达国家农业支持的学习,不符合当前正在实施的“以工补农”的具体情况,也不利于新时期“以工补农”的科学实施。为此,本研究将在评述现有研究和借鉴相关理论的基础上,根据“以工补农”所面临的任务和特殊的体制背景,对“以工补农”做出新的界定。本文认为“以工补农”是三农问题日益严峻和农业在国民经济中比重显著下降的背景下,基于单纯市场机制无法解决三农问题,政府通过市场干预手段和再分配手段,调整国民收入分配格局,促使和推动非农对三农进行的支持和帮助,以促进三农发展。
(2)研究视角创新。主要包括两个方面的视角创新。第一,本研究从整合“补农”主体互动关系的角度探讨现阶段“以工补农”存在的问题,并从这一角度提出提升“以工补农”效果的政策措施。而一般的研究主要从如何加大“补农”的力度,以及怎样投入的角度入手。本研究则着眼于怎样整合“补农”主体互动关系,以使得投入的资源尽可能发挥最大的作用,产生最好的效果。第二,本研究将现阶段“以工补农”划分为政府主导财政直接支农和政府引导市场主体支农两种渠道进行分析。“以工补农”是一个极其复杂而又庞大的实践问题,用什么方法能够全面系统地反映正在进行的“以工补农”实践,是一个新问题。由于“以工补农”实践的庞杂性,容易导致概括的片面性,本研究从政府是“以工补农”第一主体,但又不是唯一实施主体的思路出发,根据政府作用实施渠道将“以工补农”划分为政府直接补农和引导市场主体补农,具有一定的新意。
(3)观点创新。论文的观点主要可能有三个方面的创新。第一,对三农问题的实质,以及“以工补农”的基本任务提出新的观点。对三农问题的正确认识是明确“以工补农”基本任务的前提。三农问题看似简单的概念,由于其问题表现过于庞杂,容易形成片面的认识:或强调农业现代化问题,或强调粮食安全问题,或强调农民收入问题,或强调农村落后问题等等不一而足。本研究立足于三农问题的整体性,从相互关联和相互制约的角度对三农问题进行剖析,从而也将“以工补农”的基本任务定位为一个系统工程,这也为整合全社会“补农”力量提出必要性。第二,对现行“以工补农”存在的问题及其原因提出新的观点。由于本研究是从“补农”主体互动整合的角度来研究“以工补农”的实践,不同于传统的从“补农”力度和如何投入的研究角度,因此对“以工补农”存在的问题及其原因有一些新的观点和结论。第三,对未来怎样提升“以工补农”效果提出新的观点。同样基于研究角度的不同,本研究从如何协调各“补农”主体关系,整合各主体力量,实现各主体良性互动的角度提出提升“以工补农”效果的对策措施。
由于“以工补农”是我国当前正在全面展开和不断深入的伟大社会实践,在本研究的进行过程中和完成之际,新的问题不断产生,新的政策措施不断出台,对于这些新的问题和新的政策措施,本研究未能很好的反映和深入研究,这需要在后续的研究中进一步探讨。
Increasingly serious problem of agriculture has received the unprecedented attention of the whole society; the central authorities issued a series of landmark agricultural policy, such as agricultural tax exemption, the development of modern agriculture, rural areas, attempting to change the status of agriculture. However, the situation of the three agricultural issues in the new period is still grim, to solve these issues takes a long time, how to "subsidizing to agriculture, peasant and country"is also still in the preliminary explored. Faced with the grim situation of the three rural problems, in the background of the central increasing the efforts of "subsidizing and developing agriculture by industry", the study from the point of view of the integration between the main body to probe into how to upgrade the effect of "subsidizing to agriculture, peasant and country"in the new period. Thus, this study starts with the concept of "subsidizing and developing agriculture " and correlative basic issues , on the basis of hackling existing study and relative theory, definituding the concept and basic areas of "subsidizing and developing agriculture by industry", and then by analysising the actuality of the three agricultural issues and the effect of "subsidizing and developing agriculture by industry", to discuss "subsidizing to agriculture, peasant and country"the integration of the main conditions on the operation of the interactive effects of constraints, revealing the the main interaction Problems and deep-rooted causes of the main interaction in "subsidizing and developing agriculture by industry", and on this basis, to research and design the main mode and the realization of path about the main body's interactive integration of "subsidizing to agriculture, peasant and country"in the new period. Firstly, the main research content
In this paper, the following five areas have been researched.
(1)To explore and norm the concept and basic category of "subsidizing and developing agriculture by industry".According to the central policy and the reality of the three agricultural issues, Combination of existing research and relevant theory, to norm the intension of "subsidizing and developing agriculture by industry".And further from the view of what is "subsidizing and developing agriculture by industry"," why to "subsidizing and developing agriculture by industry", how to "subsidizing to agriculture, peasant and country", to discuss the basis, tasks, subjects, methods, channels and the main interaction relationship of "subsidizing and developing agriculture by industry", in order to lay a theoretical foundation for the full text of the study.
(2) Discuss the basic task and the main channel of "subsidizing and developing agriculture by industry". The basic task of "subsidizing to agriculture, peasant and country"is to evaluate the effect of the criterion run of "subsidizing to agriculture, peasant and country"at this stage, it is also central issue of implementing "subsidizing to agriculture, peasant and country"in the future. Taking into account the "subsidizing to agriculture, peasant and country"was made against the background of the highlighted three rural issues, this paper started with the main performance of the three agricultural problems, resolved the substance of the three agricultural issues , combined with the grim situation of the three agricultural issues to discuss the basic task of "subsidizing and developing agriculture by industry". On this basis, according to the relationship of market-related economic actors , discussed and sorted out the main channel of "subsidizing to agriculture, peasant and country"at this stage, in order to establish the basis for evaluating the operating results of "subsidizing and developing agriculture by industry".
(3) Analysis the operation situation of the existing "subsidizing and developing agriculture by industry", and evaluate its practical results. On the basis of sorting out the main channel of "subsidizing and developing agriculture by industry", to classify the " subsidizing and developing agriculture by industry" into the government-led financial markets to support agriculture and the government to guide the main marketer support agriculture,and from the specific channels, the main implementation body, the implementation modes and specific measures and so on , to analysis the operate situation of each channel, and then assess practical results arising from the basic tasks of "subsidizing to agriculture, peasant and country".
(4) To explore and reveal the main problems exsits in"subsidizing to agriculture, peasant and country"integration of the interaction and why at this stage. According to the result of analysis the operation of "subsidizing to agriculture, peasant and country"to explore the constraints of "subsidizing to agriculture, peasant and country"main interactive integration situation that effect to "subsidizing and developing agriculture", and to further analysis the specific issues existed in the main interactive integration of "subsidizing and developing agriculture by industry", and then analyzes the reasons for these problems.
(5) Research and design the basic modes and the realization of paths of the main interactive integration of "subsidizing and developing agriculture by industry"in the new period. Based on analysis the main problems exsits in"subsidizing to agriculture, peasant and country"integration of the interaction and why at this stage, and according to the characteristics of the three agricultural issues, further defined the basic ideas and should adhere to the basic principles of "subsidizing to agriculture, peasant and country",and according to the designed basic pattern, to advance the basic paths of integration of all aspects of power and achieve the positive interaction. between 1 main bodies.
Secondly, the main conclusions and important points.
(1) Government-led agro-financial direct effect of increasing the income of the farmers was not obvious, but to improve the agricultural resources with the traditional advantages of a major agricultural province of agricultural output are more pronounced effect, rural and social development, health, social security and other fields did not receive sufficient support. The reseach estimated that the use of ordinary least-squares regression, ridge regression estimates and the method of principal components is estimated that expenditure on financial support for agriculture and farmers income growth analysis of the relationship between the results show that the fiscal income of the farmers between agriculture and the negative partial correlation relations, that is, excluding other factors affect the income of rural residents after the impact, the state financial expenditure for agriculture has played virtually no growth promoting effect of the income of the farmers. Evaluation of the use of DEA methods on different parts of the country the financial efficiency of agriculture on the agricultural output of the analysis, results showed that the traditional big agricultural province, the efficiency of financial support for agriculture is relatively high, and the lack of resources in agricultural production areas, the relative efficiency of financial support for agriculture terms are also relatively low. Specific input from the actual demand and the gap between analysis, show that the rural and social development, health, social security and other areas did not receive sufficient support.
(2) Government guide the market players support agriculture acquired in spite of not a small achievement in nurturing agriculture-related market players, increase their income, raise the level of agricultural modernization and the promotion of rural economic and social development, but also for agriculture are far from providing long-term sustainable and stable development platform the benefits of constraints has also been considerable.
According to the specific measures of support and guidance, financial institutions, rural development and agriculture-related business, as well as financial institutions, agro-specific manner and the benefit of three agriculture analysis shows that financial institutions, government guidance in support of agro-food acquisition, large-scale agricultural development projects and rural infrastructure has played an important role, but the specific aspects of increasing the effectiveness of the income of the farmers was not obvious. According to the specific measures of support and guidance, the development of agriculture-related enterprises, as well as agriculture-related enterprises of the agro-specific manner and the benefit of agriculture analysis, and demonstrates the Government guide enterprises to support agriculture in order to increase the income of the fanners to enhance the level of agricultural modernization and prosperity of the rural economy has made important achievements, but the main problem is that business and the relationship between agriculture is still relatively fragile, and the existence of damage to agriculture business interests, long-term sustainable development of agriculture has not yet set up the platform, while the entire The surface is also very limited benefit.
(3) The main interaction of "subsidizing to agriculture, peasant and country"affects the overall effects of "support agriculture" from both the collaboration missing and division of labor constraints. "Subsidizing and developing agriculture by industry"as a subject involving a large number of systems engineering, in addition to outside input, who is going to vote, to vote through the channels, where the successful bidder of all kinds of subjects in the "subsidizing and developing agriculture " the process of how the division of labor how to cope with, that is, " Subsidizing and developing agriculture," the main problem of interaction is also a very key issue. Lack of collaboration among the main constraints of the three agricultural problems break the vicious circle, resulting in severe recessive loss of three agricultural interests, resulting in the widening gap between urban and rural areas difficult to fundamentally reverse the trend. Division of the main bottlenecks that lead to bias can not be resolved, not the rational allocation of limited investment, as well as difficult to give full play to the existing role of input. Missing from the collaboration and division of labor bias of the specific performance, in all the main areas of collaboration, focus on direct financial support for agriculture, to guide the market, not the main emphasis on agriculture; emphasis on bank credit to guide agriculture, importance of agriculture to guide the insurance not enough; emphasis on the industrialization of agriculture leading agriculture enterprises, and township enterprises and small and medium-sized guide not placed enough emphasis on agriculture. Division of labor in all the main aspects of the issue of more importance to agriculture, and farmers and rural issues are often ignored; short-term and direct problem solving, do not attach importance to long-term and based on problem solving, attention to explicit support, not the loss of attention to hidden problems; in the support of specific object, some object is over-investment in certain object is ignored. These issues with the multi-management system to support agriculture and the government is directly related to preferences.
(4)The conformity between the main body of "subsidizing and developing agriculture by industry"depends on the the government and the market main body should play a main role in a reasonable position, and theat achieving the aim,it is necessary that improve the rural market system to build an interactive platform; reform the agriculture management system to build an interactive relationship, normative acts of the Government of holding out agriculture to ensure the positive interaction. The conformity between the main body of subsidizing and developing agriculture by industry"acoords the different nature of the subject, definitudes the role promoting the t positive interaction between the main body in the he process of subsidizing and developing agriculture", in order to achieve the integration of the whole society force. Government as the main responsibility body,the implementation body, the main incentive and supervision; its the main task is to improve the system, afford public goods, regulate external, improve quality of farmers and stabilize dramatic fluctuations in market prices. Financial institutions as a implementation body for"subsidizing and developing agriculture ", and it is also the main market operators, and its main function is i providing the support of credit, insurance and other financial services in the process of subsidizing and developing agriculture". Enterprise as a implementation body for"subsidizing and developing agriculture", and the main market operators, its main functions is to promote growth of the income of the farmers and enhance the modernization level of agriculture and the rural through the transaction the goods and elements. To achieve the conformity between the main body of "subsidizing and developing agriculture by industry"needs perfect the circulation system of rural land, reform the household registration system and improve the fanner employment and social security system in order to build a platform for interaction between the main body of subsidizing and developing agriculture by industry"; through the reform the relationship of government departments at all levels, between the Governments, between the Government and market players to build an interactive relationship; through the process and the institutionalization of the government's actions to ensure that the benign interaction between the main body of subsidizing and developing agriculture ".
Thirdly, the main innovation.
(1) The innovation of define the concept. The mainly innovation is toadvance the new view of subsidizing and developing agriculture by industry" . Although"subsidizing and developing agriculture by industry"、"subsidizing and developing industry by agriculture"and the agricultural support in developed countries have an important relation at this stage, but because of the different background of subsidizing and developing agriculture by industry"、"subsidizing and developing industry by agriculture",as well as the different national conditions between developed countries and China, simply figuring subsidizing and developing agriculture by industry as the industry feeds agriculture, and our nation learning of the agricultural support in developed countries, not being in line with the current complexion implemented subsidizing and developing agriculture by industry, and not being conducive to the scienced implementation of subsidizing and developing agriculture by industry. Thus, the comments of this study will draw on existing research and theory, based on the facing task system and the special background of subsidizing and developing agriculture by industry, making the new definition for"subsidizing and developing agriculture by industry". This article holds that the "subsidizing and developing agriculture by industry"is the support and help that in the background of three agricultural problems are increasingly serious and agriculture proportion in the national economy is significantly droping, based on market mechanisms alone can not solve the issue of agriculture, the Government had adopted the means of market intervention and the redistribution, adjusting the structure of national income distribution, encouraging and promoting the development of agriculture.
(2) The innovation of perspective. There are two aspects of innovation perspective. First, this study explores the problems of "subsidizing to agriculture, peasant and country"from the perspective of interaction between the main body of subsidizing and developing agriculture", and put forwaed the policy measures of improving the effect of "subsidizing to agriculture, peasant and country"from this point of view. The general study starts with how to step up from the "premium agricultural" efforts, as well as how to put into. This study is focused on how to integrate interactive relationship between the main body of "subsidizing and developing agriculture", in order to make the the resources exert maximum impact as far as possible, producing the best results. Second, this study will divide the current "subsidizing to agriculture, peasant and country"into two departs, a direct government-led financial supporting agriculture and the government to guide the market to support agriculture. "subsidizing to agriculture, peasant and country"is an extremely complex and large practical problems, how to reflect the ongoing practice of "subsidizing to agriculture, peasant and country" in a comprehensive and systematic way is a new problem. As a result of the complex nature of practice of "subsidizing and developing agriculture by industry", easily leading to a general one-sidedness, the point of view of this study is that the government is the first main body, but not the only implement body, according to the role of the implementation of the channels divide the "subsidizing to agriculture, peasant and country"into direct government-led financi al supporting agriculture and the government to guide the market to support agriculture ,this is a innovation.
(3) The innovation of viewpoint. The main point of view papers may be have three aspects of innovation. First, the new point of view of the essence of the problems of agriculture, as well as the basic task of "subsidizing and developing agriculture by industry". The promise of definituding the basic task of "subsidizing to agriculture, peasant and country"is corrent acquaintanceship of the probleme of three rural . The problem of three rural seems to be simple, but as a result of their problems are too complex, easy to form a one-sided understanding:or stressed agricultural modernization, or stressed the issue of food security, or stressed the income of the farmers, or emphasized different problems in rural areas and backward adequate. In this study, based on the integrity of the issues of three rural, analysed the rural issues from the interrelated and mutually constraining, which make the basic tasks of "subsidizing to agriculture, peasant and country"as a systematic project. Secondly, putting forward new problems and the reasons based on the existing "subsidizing and developing agriculture by industry". As a result of this study explores the problems of "subsidizing to agriculture, peasant and country"from the perspective of interaction between the main body of "subsidizing and developing agriculture ",different from the traditional "subsidizing and developing agriculture" efforts and how to research point of input, so the ""subsidizing and developing agriculture by industry"" and the reasons for the problems there are some new ideas and conclusions. Thirdly, how to upgrade in the future ""subsidizing and developing agriculture by industry", the effect of a new point of view. The same research-based perspective of the different from this study how to coordinate the various ""subsidizing and developing agriculture " the main relationship, the main force to integrate and realize the benign interaction between the point of view of the main initiatives to improve the "agricultural workers make up" effect of countermeasures.
As a result of the "subsidizing to agriculture, peasant and country"is the currently great deepening social practice in our country in the course of the completion of this study, the new problems continually arise, new policies and measures to keep out, for these new problems and new policies and measures, this study failed to reflect the very good and in-depth study, which need to follow-up study to explore further.
引文
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