摘要
我国现行的农村公共产品供给体制是在“以农养工,以农村支持城市”的条件下形成的,政府和农村居民共同承担着农村公共产品供给的重任。2004年中央一号文件的颁布,预告着“工业反哺农业”的到来,随后几年我国政府实施积极的财政支农政策,出台了一系列“惠农”政策,极大增加了农村公共产品供给总量,农村生产性公共产品和生活性公共产品均有较大程度提高。相对生活性公共产品,农村生产性公共产品对于推动农业和农村非农产业发展、增加农民收入、拉动农村消费和农村私人投资、缩小城乡经济发展的差距等具有更直接、更见效的作用。公共财政向农业农村的倾斜,为我国农村生产性公共产品供给结构的调整与优化带来了契机。
本论文在前人研究的基础上,借助于农业经济学、公共经济学、发展经济学等主流经济学理论以及数量经济学、现代计量经济学分析方法,分析了我国农村生产性公共产品供给的相关问题,并进而基于理论和经验分析的结论提出了提高我国农村生产性公共产品供给效果的政策保障机制。我们在研究过程中遵循了“问题提出、现状分析、效果检验、政策建议”的研究思路,对以下几个问题进行了研究。论文主要内容及结论如下:
第一,探讨农村生产性公共产品供给的公共财政背景。研究发现,现阶段我国财政支农绝对规模上升,但相对量不足;支持农业生产和事业费的财政支出比例过高,农业科技投入相对较低;财政支农效果不佳、资金管理还有待加强。建设社会主义新农村的一个重要任务,就是通过加大政府财政投入来支持我国农业生产,提高我国农产品国际竞争力。
第二,分析农村生产性公共产品供给现状。研究发现,一是从供给规模来看,农村生产性公共产品供给绝对规模上升,但相对规模在下降;二是从供给的产品结构来看,农村生产性公共产品供给具有重“硬”轻“软”的特征;三是从供给的区域结构来看,农村生产性公共产品供给具有明显的地区差距。具体可分为水土保持重点区域、电网建设重点区域和农业综合开发区域。但是这种地域上呈现的不均衡在很大程度上取决于自然资源禀赋的显著差异,而非地区经济差异带来的公共产品供给不均等问题,因此这种不均衡是具有合理性的。
第三,分析农村生产性公共产品供给对农户投资行为的效果。在分析我国农村生产性公共产品供给与农户投资行为的内在联系的基础上,采集30个省市自治区数据,建立农户农业投资行为实证模型,由此分析农村生产性公共产品投资对每个农户投资行为的平均影响。研究发现,农村生产性公共产品供给对农户农业投资行为具有一定积极影响。增加农村用电量、增加水土流失治理面积、改造中低产田都会增加农户私人投资。而农村水库容量、除涝面积和治碱面积对农户农业投资行为均无显著影响。由此证明我国农村公共资本与农户私人资本具有互补关系,农村公共投资将刺激农户私人资本扩张。
第四,分析农村生产性公共产品供给的政府支出效率。利用2003～2005年省级面板数据,运用数据包络分析法DEA来分析我国农村生产性公共产品供给效率,分析结果表明:一是我国农村生产性公共产品供给效率普遍较高且逐年改善,积极的财政支农政策对增加农村公共产品供给规模和优化供给结构具有正面作用。二是各地区被参考次数排名变化不大,地区间供给效率差距逐年缩小。三是纯技术效率值接近整体效率,结构不合理是造成部分地区公共产品供给无效的最主要原因。四是属于纯公共产品的水土流失治理是相对需削减的最主要部分,间接反映农村生产性准公共产品供给不足。五是我国农村生产性公共产品供给效率不存在东中西地带差距,农业主产区与非主产区也无显著区别。六是影响生产性公共产品供给效率的因素主要是人均农林水利气象等部门事业费和成灾率,政府收支对其无显著影响。根据这些基本结论,笔者得到一些重要政策启示。
第五,主要国家农村生产性公共产品供给制度的经验借鉴。通过阐述亚洲四国及欧美主要国家农村公共产品供给经验,发现各国农村公共产品供给具有极大的共性,但结合各国国情,也呈现出独特的经验模式。泰国的经验模式是以合作社为载体的供给体制、日本的经验模式是以农协为载体的供给体制、印度的经验模式是项目管理式的供给体制、韩国的经验模式是全民运动式的供给体制、美国的经验模式是以建设现代农业为目标的供给体制、德国的经验模式是以地方政府为供给主体的供给体制。对这些经验的总结,为完善我国农村生产性公共产品供给制度提出了一些政策性的启示。具体包括:加强财政支农政策,扩大公共产品供给规模;建立以地方政府为供给主体的公共产品供给体制,提高公共产品供给效率;对于全民运动式的公共产品供给体制,应注意协调农村生产性供给与农民负担;大力支持农村合作组织,注重发挥社会组织和协会的作用;推动农业科技发展,加快传统农业向现代农业的转变;加强农业立法,将政策法制化。
第六,进行提高农村生产性公共产品供给效果的政策保障机制设计。在回顾建国以来农村生产性公共产品供给体制历史变迁的基础上,从公共产品供给决策、资金筹集和生产监管三方面构建了提高农村生产性公共产品供给效果的政策保障机制。具体包括,对于供给决策机制建设,一是在微观上建立包含农户的自下而上的需求表达机制,二是在宏观上,建立公共产品供给结构调节机制;对于资金筹集机制建设,一是建立多元化的农业投入保障体系,二是改革农口事业单位经费供给办法;对于生产监管机制建设,一是编制公共产品供给资金预算,二是调整公共产品专项支出资金,三是推广科学的资金分配办法,四是建立公共产品供给绩效评价考核机制,五是健全公共产品供给管理制度。
China's current supply system of public goods in rural areas is formed under the conditions of "the countryside feeding the city". Government and the rural residents afford the supply of public goods. The promulgation of No. 1 Article of the Party Central Committee of 2004 presages the coming of industry re-feeding agriculture . In the following years, Chinese Government have proposed a series of policies about benefiting the peasants to implement the proactive fiscal policy and to support agriculture, which have greatly increased the total production of the rural public goods, such as the productive and living public goods. Compared to living public goods, the productive public goods have a greater and more directly efficiency in the promotion of agriculture and rural non-agricultural industries development, increasing their income, stimulating rural consumption and private investment and narrowing the gap between urban and rural economic development. The tilting of Public finances to the agriculture and rural areas will bring opportunities to the regulate and optimization of supplying structure of productive public goods.
Based on the formers' studies, by the way of mainstream economic theory (agricultural economics, public economics, development economics) and the modern methods of econometric analysis(quantitative economics, econometrics), this paper analyse the issues related to the supply of China's rural productive public goods. Then it put forward the policy protection mechanism to improve the supply effect of productive public goods based on the theoretical and empirical analysis. We have followed the study ideas of "Puting foward problem, analysing current situation, testing effect, recommending mpolicy measure" and research on the following questions.
Firstly, the first paragarph discussed the public finance context of rural productive public goods supply. Study found that the scale of rural productive public goods supply increased in absolute size, but relative quantity is not enough; the proportion of financial expenditure to support agricultural production and operating expenses are too high, but a relatively low investment in agricultural science and technology. Building a new socialist countryside as an important task is to increase financial input in supporting China's agricultural production and improving the international competitiveness of China's agricultural products.
Secondly, analyze the supply status of rural productive public goods. The study found that: First, the scale of productive public goods supply increased in an absolute scale, but relative size is declining; second, from the perspective of supplying product mix, the supply of rural productive public goods has heavy characteristics of "hard, light and soft "; third, the supply of rural productive public goods has significant features of regional disparities, which can be divided into soil and water conservation areas, the regional power grid construction and agricultural comprehensive development region. However, such a geographical imbalance depends largely on the significant differences in the endowment of natural resources, rather than the uneven supply of public goods brought about by differences in the regional economy. So this imbalance is reasonable,
Thirdly, analyze the effect of these investment behaviors for farmers from the rural productive supply of public goods. Based on the analysis of internal relations between rural productive supply of public goods and investment behaviors of farmers, collecting data of 30 provinces and municipalities, this paper establish empirical models of farmers" investment behavior in agriculture. Thus the analysis of average impacts of rural productive investment of public goods investments to each farmer's investment behavior. The study found that rural productive supply of public goods investment have a positive impact on farmers' behavior of agricultural investment, such as increasing electricity consumption , increasing the soil erosion area and transforming low-yield farmland, while rural reservoir capacity, waterlogging control area and alkali treatment area had no significant effect. It is proof that there is a complementary relationship between rural public capital and farmers' private capital, and public investment in rural areas will stimulate the expansion of farmers' private capital.
Fourthly, analyze the efficiency of government spending on rural productive supply of public goods. With the provincial panel data from 2003 to 2005 and Envelopment Analysis DEA to analyze the efficiency in the rural productive supply of public goods, the results show that: First, the efficiency in the rural productive supply of public goods has improved year-on-year. Active fiscal policies on agriculture have a positive effect on increasing the supply of public goods in rural areas to optimize the scale and the supply structure. Second, the reference number of the regions was little change in ranking between regions and the gap between supply efficiency narrows every year. Third, pure technical efficiency value close to the overall efficiency, is the irrational structure of public goods supply in some areas the main reason is invalid. Four, soil erosion control which is pure public goods is the most important part to be reduced that indirectly reflects the lack in quasi-public goods supply. Five, there is no gap among the east, central and the west in the productive supply efficiency in China's rural, and there is also no significant difference between the main producing areas of agriculture and non-main producing areas. Six, the main impact factor on productive efficiency in the supply of public goods is the rate of spending and disaster of per capita in agriculture, forestry, water resources, meteorology and other departments. The revenue and expenditure of government have no significant effect. According to these basic conclusions, I have learnt a number of important enlighten in policy.
Fifthly, study the experience of the rural production supply system of public goods from the developed countries. Through studying the supply experience from four Asian countries and developed countries in Europe and the United States, I found that they have great similarities, but considering national conditions, they showed unique patterns. The experience model of Thailand is based on the carrier of cooperative system, while Japan is based on Agricultural Cooperative Federation, India's experience model is project management model, the experience of South Korea is National Movement-style model and the United States model is based on the objective of building a modern agriculture's supply system, the experience model of German is local government supply system. These experiences have given us a number of policy-oriented enlightenments for supply system the rural productive public goods, which includes: strengthening the fiscal policy to support agriculture and expanding the scale of public goods supply; establishing supply system of public goods and local government will be the main the supplier to improve the efficiency of the supply of public goods; considering the National Movement form supply system of public goods, attention should be paid to coordinate the productive supply and farmers' burden; supporting rural cooperative organizations, community-oriented organizations and associations; promoting the development of agricultural science and technology to speed up the changing from traditional agriculture to modern agriculture; strengthening agricultural legislation and legalizing the agricultural policy.
Sixthly, make policy protection mechanism design to increase supply efficiency of rural productive public goods. Reviewing the historical changes since the founding of the productive public goods supply system, I build the policy protection mechanism to increase rural supply efficiency of productive public goods supply from the decision-making, fund raising and production supervision, which includes: first, to build a needs expression mechanism for the farmers from bottom to top on the microscopic level; second, on the macro level, the establishment of public goods supply structure adjustment mechanism should be made. Considering the fund-raising mechanism construction, a wide range of agricultural inputs security system should be established, and the funding supply approach of public institution should also be reformed; considering the construction of the productive regulatory mechanism, there are three points: first, the preparation of funds budget for the supply of public goods. The other is to adjust the expenditure of earmarked public funds. The third is to promote scientific funds allocation approach. The forth is the establishment of four performance evaluation assessment mechanism of public goods supply. The five last is to perfect the management system of public goods supply.
引文
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