我国区域基本公共服务均等化研究

发布时间：2018-04-24 18:26

本文选题：基本 + 公共服务　；参考：《财政部财政科学研究所》2014年博士论文

【摘要】：十六大尤其是十六届六中全会提出“逐步实现基本公共服务均等化”以来,随着区域协调发展战略的实施,中央转移支付力度加大,以及公共财政、民生建设的大力推进,我国基本公共服务制度框架初步形成,基本公共服务标准建立：2009年左右区域间基本公共服务差距呈缩小趋势,西部地区发展更快；覆盖面不断扩大,基本公共服务项目增多,标准不断提高、个人负担不断降低,已建成了世界上最大规模的、全覆盖的基本医疗保障网和养老保障网。基本公共服务投入不足、区域基本公共服务差距不断拉大等问题得到了初步解决。但是又出现了新的问题：基本公共服务质量问题越来越凸显,优质基本公共服务供给不充足和不均衡越来越突出；区域内、省际内不均等比较突出；基本公共服务供给碎片化、基本公共服务结构差异等问题显现。这些都表明,我国区域基本公共服务均等化正处于一个新的起点上。在推进中是继续坚持以前渐近式的扩大投入、增加项目、提高标准思路,还是要进行调整?需要深入研究。本文试图从理论和实践两个层面来寻找答案。公共服务——公共服务均等化——基本公共服务均等化,内涵不断缩小。公共服务主要源自于正外部性,一类是让大家生活得更好,比如接受教育、享受公共文化、免于贫困(社会救助、保障住房等)、免于疾病等；一类是与劳动力流动相关,能够促进劳动力自由流动,比如养老保险、医疗保险以及公共就业服务等。基本公共服务均等化中“公共服务”,特指中央和地方政府共同提供、需要均等化的公共服务,“基本”是指与人们基本的生存权和发展权紧密相关、还受国家财政供给能力约束的公共服务。社会扣除理论、公平正义观等马克思主义经典理论,福利经济学理论、公平正义论等西方政治经济学理论,以及我国包容性发展中的财政选择、民生财政、区域平衡发展等理论,都为区域基本公共服务均等化提供了坚实理论基础。在具体供给中,要处理好两个基本关系,政府与市场的关系,让政府、市场、社会各得其所、共同发挥作用；中央与地方的关系,各级政府各司其职、密切配合,共同提供优质高效的基本公共服务。市场经济条件下,区域基本公共服务均等化的实现机制包括推进区域协调发展、实行分税制、建立公共财政、实施转移支付等。实践层面,首先回顾了国外的做法与经验。选取典型国家的案例进行比较分析,在基本公共服务制度建成后,从上个世纪80年代新公共管理运动起,到近期欧债危机后欧盟各国快速推进的福利改革都表明,改革完善已成为主流。主要经验有：公共服务提供不是一个模式,而是各国不同、量身定做；不是一蹴而就的,而是不断修正、不断改进的逐步完善过程,建立一个完善的制度需要一个较长的历史时期,基本公共服务的财政支持方式要与发展阶段相匹配等；改革未有尽头,健全完善公共服务各国都“在路上”,并且会一直“在路上”。主要教训有：跃进式、追赶式、渐近式福利,都会遇到财政汲取能力的天花板,只要超过了财政收入,就会遭遇福利困境或福利陷阱；由于制度惯性,福利困境会滞后一段时间才显现,由俭入奢易,由奢入俭难,一旦显现,任何国家都会遭受福利改革之困,新兴国家可能引起社会动荡,老牌福利国家会遭遇利益集团的阻挠。我国区域基本公共服务均等化从建国至今,大致经历了三个时期：“事项少、广覆盖、区域均等、城乡分割、个人负担较低”的低水平均衡时期(1949—1977年),“覆盖面不断缩小、区域差距不断加大、城乡差距不断加大、群体差距不断加大、个人负担不断加重”的逐步失衡时期(1978—-2002年),“广覆盖、趋于均衡、个人负担降低”逐步迈向新的均衡时期(2003年—至今)。从理论和实践分析看,区域基本公共服务均等化内生于经济社会发展,尝试建立了基本公共服务需求与供给分析框架。由于公共服务需求单边增长、公共服务供给受财政能力约束有上限,故公共服务供给在经历瓦格纳增长后,必然会在财政能力约束下出现瓦格纳调整,基本公共服务供给一般会经历较低且相对稳定、持续增长、水平合理且相对稳定等三个阶段。进入瓦格纳调整即相对稳定阶段后,公共服务供给就要从扩大投入、数量扩张到提高质量和提升效率转变,从满足需求到引导管理预期的转变。按照供求框架的分析,当前我国推进区域基本公共服务均等化的主要难点在财政收入增长空间变窄、公共服务支出压力增大,由此判断我国正在向第三个阶段转变：即将进入巩固完善时期,要更加关注机会均等、更加关注质量效率、更加关注预期引导,主要目标是：全面覆盖,公平均等,负担均衡,要把握四个基本原则：公平正义,一体化；基本适度,可持续；政府主导,多元化；事权清晰,均等化,要在数量标准的基础上,关注质量标准及可及性标准。
[Abstract]:The sixteen major, especially in the sixth Plenary Session of the 16th CPC Central Committee, proposed the "equalization of basic public services", with the implementation of the regional coordinated development strategy, the increase of the central transfer payment, the promotion of public finance and the construction of the people's livelihood. The basic public service system framework has been preliminarily formed in China, and the basic public service standards are set up: 20 In the past 09 years, the gap between the basic public services in the region is narrowing, the development of the western region is faster, the coverage is expanding, the basic public service projects are increasing, the standards are increasing, and the individual burden is continuously reduced, and the largest, covered basic medical care network and the old-age security network have been built in the world. The basic public service input has been built. Insufficient, the regional basic public service gap widening and other problems have been initially solved. But there are new problems: the quality of basic public service is becoming more and more prominent, the supply of basic public services is not sufficient and uneven. In the region, the interprovincial inequality is more prominent; the supply of basic public services is broken. This shows that the equalization of basic public services in the region is on a new starting point. In advance, we should continue to adhere to the extended input of the previous asymptotic formula, increase the project, improve the standard of thinking, or adjust it, so it needs to be studied in depth.
This article tries to find out the answers from two aspects of theory and practice. Public service equalization of public services - the equalization of basic public services and the narrowing of its connotation. Public services are mainly derived from the externality of Yu Zheng, and the other is to make people live better, such as education, public culture, and poverty (social assistance, protection). It is related to the flow of labor, which can promote the free flow of labor, such as pension insurance, medical insurance and public employment services. The "public service" in the equalization of basic public services refers to the joint provision of the central and local governments and the need for equalization of public services. "Basic" refers to people. The basic right of survival is closely related to the right to development, and the public service is bound by the state's financial supply. The theory of social deduction, the concept of fair and justice, the theory of welfare economics, the theory of fairness and justice and other Western political and economic theories, and the financial choice of the inclusive development, the livelihood of the people's livelihood, and the finance of the people's livelihood, Qu Yuping The theory of balance development provides a solid theoretical basis for the equalization of regional basic public services. In the specific supply, we should deal with two basic relations. The relationship between the government and the market makes the government, the market and the society have their respective functions. Under the conditions of market economy, the realization mechanism of the equalization of regional basic public services includes promoting regional coordinated development, implementing tax sharing system, establishing public finance and carrying out transfer payments.
At the practical level, the practice and experience of foreign countries are reviewed first. A comparative analysis of the cases of typical countries is selected. After the establishment of the basic public service system, from the 80s new public management movement in the last century, the rapid progress of welfare reform in the EU countries after the recent European debt crisis has shown that the main experience of the reform and improvement has been the main experience. There are: the provision of public service is not a model, but the different countries, tailor made; not overnight, but a continuous correction, continuous improvement process, the establishment of a perfect system needs a longer historical period, the basic public service financial support should be matched with the development stage, and so on; the reform has not been changed. At the end, all the public service countries are "on the road" and will be "on the way". The main lessons are: leap forward, catch up, asymptotic welfare, will meet the ceiling of financial capacity, as long as more than the financial income, will encounter welfare plight or welfare trap; because of institutional inertia, welfare plight lags behind. In a period of time, it can be seen from frugality to extravagant, extravagant and frugal. As soon as it appears, any country will suffer from welfare reform, the emerging countries may cause social unrest and the old welfare state will encounter the obstruction of interest groups. The equalization of regional basic public services has experienced three periods from the founding of the people's Republic to the present. "Cover, regional equality, urban and rural division, low personal burden" of low level equilibrium period (1949 to 1977), "coverage is shrinking, regional gap is increasing, the gap between urban and rural areas is increasing, the gap between the groups is increasing, the burden of individual is increasing" gradually (1978 -2002), "wide coverage, equilibrium, personal burden drop" "Low" gradually moved towards a new equilibrium period (2003 to present).
From the theoretical and practical analysis, the equalization of regional basic public services is born in the economic and social development, and attempts to establish an analytical framework for the demand and supply of basic public services. Since the demand for public services is increased unilaterally, the supply of public services is bound by the financial capacity, so the supply of public services will inevitably be after the growth of Wagner. Under the constraints of financial capacity, there is a Wagner adjustment. The supply of basic public services will generally experience three stages: relatively low and relatively stable, sustained growth, reasonable level and relatively stable. After the entry of Wagner adjustment, a relatively stable stage, the supply of public services should be expanded from the expansion of the quantity to the improvement of the quality and the efficiency of improving the efficiency. According to the analysis of demand and demand, according to the analysis of the supply and demand framework, the main difficulties in promoting the equalization of basic public service in our country are narrowing in the space of fiscal revenue growth, and the pressure of public service expenditure is increasing. Therefore, it is judged that our country is turning to the third stages: it is about to enter the period of consolidation and perfection, and we should pay more attention to it. Equal opportunity, more attention to quality efficiency, more attention to the expected guidance, the main objectives are: comprehensive coverage, equitable equality, balanced burden, to grasp the four basic principles: fair and justice, integration; basic moderate, sustainable; government led, pluralism; clarity of power, equalization, on the basis of quantitative standards, on the basis of quantitative standards, to quality standards, and pay attention to quality standards And accessibility standards.

【学位授予单位】：财政部财政科学研究所
【学位级别】：博士
【学位授予年份】：2014
【分类号】：D630;F812.45

【参考文献】