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              在新型城鎮化建設中增加公共產品有效供給
                  點擊數:823         日期:2014-8-22
                  公共產品是滿足社會公共需要的產品與服務,是具有非排他性和非競爭性的產品與服務,從經濟學的角度來看,凡是市場無法有效提供的產品與服務,均可以列入公共產品的范疇。廣西是后發展欠發達地區,當前和今后一個時期,公共產品供給仍是“短板”。在新型城鎮化建設中增加公共產品的有效供給,不僅可以改善民生、增加就業,也能有效優化發展硬環境,起到“一石多鳥”的作用。
                現階段我區公共產品供求矛盾較為突出
                新型城鎮化建設對城市民生性公共產品供給提出更高要求。努力走出一條以人為本、集約高效、綠色發展、四化同步、城鄉一體、多元特色的新型城鎮化道路,是我區新型城鎮化的新趨勢新要求。“以人為本”的新型城鎮化建設將改變過去戶籍與公共產品消費權掛鉤的機制。截至2013年底,我區城鎮常住人口達到2115萬人,常住人口城鎮化率為44.8%,戶籍人口城鎮化率僅為22.3%,這意味著超過1000萬人居住在城鎮但沒有城鎮戶籍。也意味著在推進新型城鎮化過程中將會釋放出極大的公共需求,大大增加城市公共產品供給的壓力。同時,城鎮非戶籍的常住人口往往收入水平較低,自我保障能力較差,難以完全通過市場化的途徑獲得住房、教育、衛生醫療等一次性消費支出較大的產品。這又決定了我區城鎮公共產品供給必須以政府投入為主,盡可能降低“排他”門檻,使盡可能多的城鎮非戶籍人口能從中受益。
                城鄉一體化發展中公共產品供給均衡壓力較大。城鄉經濟發展不均衡直接影響城鄉公共產品的供給水平。近年來,我區加大農村公共產品的投資力度,城鄉部分民生類公共產品的均衡化水平得到顯著提高。然而,從總體上看,我區城鄉間公共產品供給的差距仍然較大,有數據表明,2012年我區75個縣(包括自治縣)縣均財政支出和人均財政支出分別為17.91億元和44.92元,分別遠低于14個地級市市均財政支出和人均財政支出的66.74億元和6684.73元。市縣兩級政府保障能力的差距將直接反映到公共產品的供給水平上,因此,我區統籌城鄉公共產品供給的壓力仍然很大。
                理順事權與支出責任,更好履行政府職責
                有效提供公共產品是市場經濟條件下政府彌補市場失效所應承擔的重要職責。政府履行好這方面職責的一個重要前提是理順事權與支出責任,這需要從三方面著手。
                一是通過合理劃分事權,提高公共產品供給的“命中率”。在現行體制下,中央政府與地方各級政府的事權劃分基本上是包含與被包含的關系,憲法并未規定地方各級政府所獨有或可獨立行使的事權。這就自然而然地形成以“自上而下”為主的公共產品的供給決策機制,即由中央和省兩級政府及其職能機構主要根據宏觀和中觀層面所反映出的問題,決定公共產品的供給結構、供給數量和供給方式。目前,我區市縣兩級政府財政自給能力相對較低,上級轉移支付占地方財政支出的比重相對較高,其中專項轉移支付也占有較大的比重,但部分專項轉移支付所指向的事權本就應由地方政府負責,但現實中存在著上級政府過度干預地方性公共事務的問題。由于地區間社會經濟和文化發展有較大的差異,上級政府在制定政策時難以準確體察不同地區的訴求,也不可能根據各地情況制定差異化的政策。這就容易造成部分公共產品的供給與百姓的現實需求不完全匹配的問題。因此,要提高公共產品供給的準確性,首先,要從行政管理體制上對政府間事權的劃分進行厘清,通過深化行政審批體制改革,逐漸將適合于地方管理的事權下放至地方。其次,可嘗試對公共產品的供給決策體制做出改變,讓基層百姓切實享有知情權、參與權、管理權和監督權,從而建立起政府對需求表達的識別機制和瞄準對接機制。
                二是厘清各級政府的支出責任,保障公共產品供給的資金來源。各級政府在參與財政資源配置時各有所長,也各有所短,考慮到國家主權和全國經濟市場的統一、宏觀政策的協調以及外部等因素,由行政管轄范圍更大的中央政府履行調節與流動性要素配置有關的市場統一和收入分配、宏觀調控、對外關系和國防安全等方面更為合適。地方政府則在空間和制度距離上更接近于納稅人,在提供與納稅人日常生活直接相關的公共產品方面則更有優勢。一般來說,根據適宜性和效率性原則來劃分“誰該干什么事”,對于由本級獨立承擔的事權,由本級統籌財力安排,承擔支出責任;對于涉及多級政府共同承擔的事權則應合理確定省市縣資金分擔比例。
                三是通過合理劃分收入,增強地方政府的財政保障能力。與民生有關的事權應逐步下放至市縣兩級政府,中央和省兩級政府對共享事權應承擔區域內均衡和財力協調的責任。同時,還需要通過深化分稅制改革,給予地方更多的自主財力,使財權與事權大體匹配,一方面,可以考慮通過將一些指向地方事權的專項轉移支付歸并至均衡性轉移支付,使地方能夠更靈活的支配轉移支付資金;另一方面,應逐步完善地方稅制體系,使地方獲得與中央和省相對獨立的財源,從而為公共產品的有效供給提供財力保障。
                發揮政府引導作用,拓寬公共產品供給渠道
                理論上講,公共產品應由政府來提供,但這并不意味著其他經濟主體就無法介入,國內外的實踐已經表明,其他的經濟主體或社會資金也是可以參與到公共產品生產領域的。要注意發揮政府引導作用,通過改革投融資體制,吸引社會資金和民間資本參與公共基礎設施建設,大力推進民生工程建設,擴大就業。從廣西的實際來看,政府可以采取多種財政手段或杠桿解決城鎮化建設中公共產品供給所存在的資金缺口問題。
                一是政府通過市場化的形式,向相關經濟主體購買公共產品與服務。如通過公共招投標方式,承諾一定的利潤率,由各相關主體提供,一定期限后,政府贖回;也可以通過承包、租賃、托管等方式,政府支付一定的費用來實現公共產品的提供。
                二是政府通過多種補貼的方式,引導相關經濟主體向社會提供公共產品。這主要適用于那些投資收益低,回收期限長的項目,可以通過政策扶持、財政補貼、稅收減免、貸款貼息等方式來引導各經濟主體進行投資公共產品領域。
                三是政府通過授予特許經營權方式,鼓勵符合條件的經濟主體投資準公共產品領域。如在城鎮通訊、有線電視、自來水供應等領域,允許其通過一定的收費來回收其成本,實現合理的收益。
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