基于包容性增长视角的基本公共服务受益均等化研究
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摘要
非均衡的经济发展战略使得经济增长速度和社会分配的公平程度出现了背离的状况。伴随着中国经济的高速增长,只有一部分社会成员从增长中获益,高速增长所带来的发展成果并没有惠及大多数社会成员尤其是弱势群体。处于转型期的中国,要想在投资和出口对经济增长的驱动力日益不足的情况下,继续保持经济的平稳快速增长和社会的可持续发展,就必须更多地关注民生问题。民生问题在公共资源配置领域最直接的反映就是基本公共服务的分配问题。本文从包容性增长的角度去考察基本公共服务的受益问题,指出受益均等化是基本公共服务均等化的终极目标。以受益均等化为研究对象,本文的研究主要包括以下几项工作：(1)基于社会经济学视角分析了基本公共服务的内涵和外延,重新定义了基本公共服务的内涵,重构了公共服务理论的分析框架,继而提出了实现基本公共服务均等化的总体改革方向。(2)指出多数基本公共服务所对应的项目是俱乐部产品和私人产品而非纯公共产品,从理论分析和实证检验两方面论证了基本公共服务的供给维度和受益维度之间存在着不一致性,并测度了三种基本公共服务在受益方面的包容性水平。(3)从包容性增长的各项具体战略目标出发,研究“基本公共服务均等化”对实现包容性增长战略所起的重要作用,指出这两者之间具有高度的内在契合性,认为受益均等化才是推动市场领域的包容性增长和公共资源领域的包容性分配的均等化模式。(4)研究了基础指标、综合测度指标的选取问题以及综合评价体系的构建问题,分析了与基本公共服务受益机会有关的包容性增长模型并对其优缺点和适用性作了简要评论。(5)运用TOPSIS法对全国各地区基本公共服务总体均等化水平、供给均等化水平和受益均等化水平进行了测度,发现区域总体均等化水平、供给均等化水平和受益均等化水平的差距在“十一五”期间都有所降低,但各地区在这三大指标上的差异仍十分显著；各地区受益均等化水平总体而言要低于供给均等化水平,且地区间受益均等化水平的差异要大于供给均等化水平的差异；总体而言,不考虑受益维度的总体均等化水平会高估各地区的均等化水平和低估各地区均等化水平之间存在的差异。
基于上述五大研究成果,本文提出了相应的政策建议,认为基本公共服务均等化包含扩大受益范围和提高受益程度两个维度。现阶段要增加基本公共服务的供给数量,但更应重视受益问题,通过扩大基本公共服务的受益范围使基本公共服务资源惠及全民。文章最后给出了具有买践性的六点政策建议：
第一,扩大基本公共服务的受益范围,逐步取缔以社会地位为标志的排他性机制,将更多的弱势群体纳入到基本公共服务的受益范围内。具体而言,就是要将农民、农民工和其他处于非正式就业状态的弱势群体逐步纳入到义务教育、基本医疗和公共卫生、社会保障等基本公共服务的受益范围内。
第二,提升弱势群体消费基本公共服务的受益程度,逐步放开基本公共服务的异地消费行为,允许跨区域享受基本公共服务的消费模式,增加弱势群体对优质公共服务的使用量和消费量；弱化个体收入对基本公共服务受益程度的制约力度,允许没有能力为公共服务消费行为付费的弱势群体低价或免费享受某些基本公共服务,提升该类群体消费基本公共服务时的财政支付比例和补助比例。
第三,构建全国统一的基本公共服务受益标准,经济发达地区的执行标准可以超过最低标准,但经济落后地区的执行标准不可以低于全国统一标准。按“成本共摊、收益共享’’的原则确定基本公共服务的受益范围,确保每个社会成员的最低受益标准要一致,但成本分摊份额可以不一致,最大限度地将更多弱势群体纳入到基本公共服务的受益范围。
第四,调整中央政府和地方政府的财政支出结构,压缩不必要的基本建设投资支出和三公经费,将更多财政资金配置于基本公共服务领域,让基本公共服务资源惠及更多社会成员,提高公共服务资源的利用效率和社会效应。
第五,增加中央对落后地区和农村的一般转移支付额度,同时构建发达地区和落后地区之间的横向转移支付制度,提升落后地区供给基本公共服务的能力,加强对转移支付资金的监管,提高转移支付资金的使用效率。
第六,将行政单位、事业单位所享受的一些类型不符、数量和质量超过规定标准的服务项目从基本公共服务的供给范围中剔除出去,在供给范围中增加符合社会平均需求和弱势群体需求的公共服务项目,按照普通社会成员尤其是弱势群体的普遍需要来确定基本公共服务的供给类型、数量标准和质量标准,提高基本公共服务的平均质量水平。
Non-balanced economic development strategies make the economic growth and the fairness degree of social division appeared deviation. With rapid growth of the Chinese economy, only part of the social members benefit from the growth. Development dutcomes brought by the high-speed growth don't benefit most of social members, especially the vulnerable groups. In the transitional period of China, with the shortage of driving force on economic growth from investment and export, we must pay more attention to people's livelihood issues, in order to continue to maintain steady and rapid economic growth and social sustainable development. The most direct reflection of the people's livelihood issues in the field of public resource configuration is the distribution of basic public services. From the perspective of inclusive growth, this article explores the benefit problem of basic public services, points out that the equalization of benefit is the ultimate goal of the equalization of basic public'services. Taking equalization of benefit as the research object, the research work of this paper mainly includes the following:(1) based on the view of socio economics, this paper analyzes the intension and extension of the basic public services, redefines the connotation of basic public services, also reconstructes the analysis framework of public service theory, and then puts forward the overall direction to realize the equalization of basic public service.(2) this paper points out that the corresponding project of most basic public services are club goods and private goods rather than pure public goods, expounds on the inconsistency between supply and benefit of basic public services through theoretical analysis and empirical test, measures inclusive level of three kinds of basic public services in terms of benefit.(3) starting from the specific strategic goals of inclusive growth, this paper studies the important role played by the equalization of basic public service in the realization of these strategic objectives, points out that there is highly internal fitness between equalization of basic public services and inclusive growth, and the equalization of benefit is the equalization mode which promotes inclusive growth in the field of market and inclusiveness in the field of public resource allocation.(4)this paper studies the problems of basic and comprehensive measure index selection and the construction of a comprehensive evaluation system, analyzes models of inclusive growth related to benefit opportunities of basic public services and makes a brief comment on its advantages and disadvantages and applicability.(5) this paper uses TOPSIS method to measure the overall level of equalization, levels of supply equalization and benefit equalization, points out the gap between areas is reduced during the period of11th five-year plan, but regional differences of these three indicators are still very significant; regional level of benefit equalization is generally below the level of supply equalization, and regional differences in the levels of benefit equalization are greater than the differences in the levels of supply equalization.
Based on the above five research results, this paper puts forward the corresponding policy recommendations. Expanding the scope of the benefit and improving the level of benefit are two dimensions of equalization of basic public services. Governments need to increase the quantity supplied of basic public services, and pay more attention to the problem of benefit. Governments also need to make public resources available for all the people by expanding the benefit scope of basic public services. Finally, the paper presents five practical policy proposals:
First, to expand the benefit scope of basic public services, gradually cancel the exclusive mechanisms with a symbol of social status, take more vulnerable groups into the benefit scope of basic public services. Specifically, gradually take peasants, migrant workers and other vulnerable groups of informal employment into the benefit scope of compulsory education, basic medical care and public health and social security.
Second, to promote social vulnerable groups'benefits from the consumption of basic public services, gradually open the access of basic public services across regions, increase the usage and consumption of high quality public services of vulnerable groups; weaken restriction of benefits of basic public services from the individual income, allow the vulnerable groups with no ability to pay for public services consume or enjoy the basic public services cheaply and freely, improve the fiscal payments and subsidies for their consumption of basic public services.
Third, to build a national benefit standard of basic public service. When executing the standard, economic developed areas can be above the minimum standards, but the economic developing areas can not be lower than the national standard.Moreover, to determine beneficial scope of basic public services according to the principle of "cost sharing and revenue sharing". To ensure minimum benefit standards of each social member be consistent while allow cost allocation to be inconsistent. Make great efforts to bring more vulnerable groups into beneficial scope of basic public services.
Fourth, to adjust the central government's and local government's fiscal expenditure structure, compress unnecessary funds for capital construction investment and "three public consumptions", allocate more fiscal resources into the field of basic public services, make it benefit more social members, and improve the efficiency and social effects of public service resources.
Fifth, to increase the general transfer payments from central government to the backward areas and the rural areas. At the same time, build interagency transfer payment system between developed regions and underdeveloped regions, improve the ability in backward area to supply basic public services, strengthen the supervision of transfer payments funds, and raise the efficiency of transfer payment funds.
Sixth, to exclude services in excess of the prescribed standards of basic public services enjoyed by administrative units and public institutions, increase services which can meet the social average demand and vulnerable groups' demand, determine the type, quantity and quality standard of basic public service, improve the average quality level of basic public services, according to the normal social members, especially the vulnerable groups generally needs.
基于上述五大研究成果,本文提出了相应的政策建议,认为基本公共服务均等化包含扩大受益范围和提高受益程度两个维度。现阶段要增加基本公共服务的供给数量,但更应重视受益问题,通过扩大基本公共服务的受益范围使基本公共服务资源惠及全民。文章最后给出了具有买践性的六点政策建议：
第一,扩大基本公共服务的受益范围,逐步取缔以社会地位为标志的排他性机制,将更多的弱势群体纳入到基本公共服务的受益范围内。具体而言,就是要将农民、农民工和其他处于非正式就业状态的弱势群体逐步纳入到义务教育、基本医疗和公共卫生、社会保障等基本公共服务的受益范围内。
第二,提升弱势群体消费基本公共服务的受益程度,逐步放开基本公共服务的异地消费行为,允许跨区域享受基本公共服务的消费模式,增加弱势群体对优质公共服务的使用量和消费量；弱化个体收入对基本公共服务受益程度的制约力度,允许没有能力为公共服务消费行为付费的弱势群体低价或免费享受某些基本公共服务,提升该类群体消费基本公共服务时的财政支付比例和补助比例。
第三,构建全国统一的基本公共服务受益标准,经济发达地区的执行标准可以超过最低标准,但经济落后地区的执行标准不可以低于全国统一标准。按“成本共摊、收益共享’’的原则确定基本公共服务的受益范围,确保每个社会成员的最低受益标准要一致,但成本分摊份额可以不一致,最大限度地将更多弱势群体纳入到基本公共服务的受益范围。
第四,调整中央政府和地方政府的财政支出结构,压缩不必要的基本建设投资支出和三公经费,将更多财政资金配置于基本公共服务领域,让基本公共服务资源惠及更多社会成员,提高公共服务资源的利用效率和社会效应。
第五,增加中央对落后地区和农村的一般转移支付额度,同时构建发达地区和落后地区之间的横向转移支付制度,提升落后地区供给基本公共服务的能力,加强对转移支付资金的监管,提高转移支付资金的使用效率。
第六,将行政单位、事业单位所享受的一些类型不符、数量和质量超过规定标准的服务项目从基本公共服务的供给范围中剔除出去,在供给范围中增加符合社会平均需求和弱势群体需求的公共服务项目,按照普通社会成员尤其是弱势群体的普遍需要来确定基本公共服务的供给类型、数量标准和质量标准,提高基本公共服务的平均质量水平。
Non-balanced economic development strategies make the economic growth and the fairness degree of social division appeared deviation. With rapid growth of the Chinese economy, only part of the social members benefit from the growth. Development dutcomes brought by the high-speed growth don't benefit most of social members, especially the vulnerable groups. In the transitional period of China, with the shortage of driving force on economic growth from investment and export, we must pay more attention to people's livelihood issues, in order to continue to maintain steady and rapid economic growth and social sustainable development. The most direct reflection of the people's livelihood issues in the field of public resource configuration is the distribution of basic public services. From the perspective of inclusive growth, this article explores the benefit problem of basic public services, points out that the equalization of benefit is the ultimate goal of the equalization of basic public'services. Taking equalization of benefit as the research object, the research work of this paper mainly includes the following:(1) based on the view of socio economics, this paper analyzes the intension and extension of the basic public services, redefines the connotation of basic public services, also reconstructes the analysis framework of public service theory, and then puts forward the overall direction to realize the equalization of basic public service.(2) this paper points out that the corresponding project of most basic public services are club goods and private goods rather than pure public goods, expounds on the inconsistency between supply and benefit of basic public services through theoretical analysis and empirical test, measures inclusive level of three kinds of basic public services in terms of benefit.(3) starting from the specific strategic goals of inclusive growth, this paper studies the important role played by the equalization of basic public service in the realization of these strategic objectives, points out that there is highly internal fitness between equalization of basic public services and inclusive growth, and the equalization of benefit is the equalization mode which promotes inclusive growth in the field of market and inclusiveness in the field of public resource allocation.(4)this paper studies the problems of basic and comprehensive measure index selection and the construction of a comprehensive evaluation system, analyzes models of inclusive growth related to benefit opportunities of basic public services and makes a brief comment on its advantages and disadvantages and applicability.(5) this paper uses TOPSIS method to measure the overall level of equalization, levels of supply equalization and benefit equalization, points out the gap between areas is reduced during the period of11th five-year plan, but regional differences of these three indicators are still very significant; regional level of benefit equalization is generally below the level of supply equalization, and regional differences in the levels of benefit equalization are greater than the differences in the levels of supply equalization.
Based on the above five research results, this paper puts forward the corresponding policy recommendations. Expanding the scope of the benefit and improving the level of benefit are two dimensions of equalization of basic public services. Governments need to increase the quantity supplied of basic public services, and pay more attention to the problem of benefit. Governments also need to make public resources available for all the people by expanding the benefit scope of basic public services. Finally, the paper presents five practical policy proposals:
First, to expand the benefit scope of basic public services, gradually cancel the exclusive mechanisms with a symbol of social status, take more vulnerable groups into the benefit scope of basic public services. Specifically, gradually take peasants, migrant workers and other vulnerable groups of informal employment into the benefit scope of compulsory education, basic medical care and public health and social security.
Second, to promote social vulnerable groups'benefits from the consumption of basic public services, gradually open the access of basic public services across regions, increase the usage and consumption of high quality public services of vulnerable groups; weaken restriction of benefits of basic public services from the individual income, allow the vulnerable groups with no ability to pay for public services consume or enjoy the basic public services cheaply and freely, improve the fiscal payments and subsidies for their consumption of basic public services.
Third, to build a national benefit standard of basic public service. When executing the standard, economic developed areas can be above the minimum standards, but the economic developing areas can not be lower than the national standard.Moreover, to determine beneficial scope of basic public services according to the principle of "cost sharing and revenue sharing". To ensure minimum benefit standards of each social member be consistent while allow cost allocation to be inconsistent. Make great efforts to bring more vulnerable groups into beneficial scope of basic public services.
Fourth, to adjust the central government's and local government's fiscal expenditure structure, compress unnecessary funds for capital construction investment and "three public consumptions", allocate more fiscal resources into the field of basic public services, make it benefit more social members, and improve the efficiency and social effects of public service resources.
Fifth, to increase the general transfer payments from central government to the backward areas and the rural areas. At the same time, build interagency transfer payment system between developed regions and underdeveloped regions, improve the ability in backward area to supply basic public services, strengthen the supervision of transfer payments funds, and raise the efficiency of transfer payment funds.
Sixth, to exclude services in excess of the prescribed standards of basic public services enjoyed by administrative units and public institutions, increase services which can meet the social average demand and vulnerable groups' demand, determine the type, quantity and quality standard of basic public service, improve the average quality level of basic public services, according to the normal social members, especially the vulnerable groups generally needs.
引文
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