基于公共服务均等化理念的政府投资作用及问题研究

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浙江财经学院硕士学位论文

摘要

在我国“扩大内需保增长”的背景条件下，依托或借助政府投资手段来实现公

共服务均等化目标是一个十分重要但又相对薄弱的研究课题。事实上，国内对政

府投资的研究更多地从如何更好地实现“扩大内需保增长”这个效率层面来展开

的，而较少从如何更好地促进“基本公共服务均等化”这个公平目标来展开。显

然，政府投资的作用是多重的，但在一个国家和地区的不同历史时期，政府投资

作用的侧重点理应会有所不同。基于上述认识，结合我国具体国情，本文从理论

和实践两个层面对政府投资在促进基本公共服务均等化过程中的重要作用进行了

较为全面细致的探讨。

本文的研究内容分为四个部分共五章。

第一部分为第一章导论。主要阐述了问题的提出背景、文献综述、论文结构

和方法，以及论文的创新点与不足之处。

第二部分为理论分析部分，即第二章。首先对基本公共服务均等化的相关概

念做必要的理论辨析。主要是讨论对均等化内涵如何正确把握及其价值取向问题，

并探析其衡量标准和方法；其次阐述政府投资的基本理论，包括政府投资的内涵、

范围和它的多重作用；最后探讨政府投资和基本公共服务均等化的理论关系，公

共财政是公共服务均等化实现的基础，而政府投资手段是公共财政回归公共的重

要工具，所以本章通过公共财政这一连接点对公共服务均等化和政府投资的理论

关系进行简单说明。

第三部分为实证研究部分，共两章，即第三、四章。第三章研究的是中央政府

投资对基本公共服务均等化的影响。本章选取了两个案例即“四万亿”投资计划

和西部大开发战略投资为研究对象。通过分析得出，在当前社会经济发展阶段，

中央层面投资项目主要集中于大型基础设施建设，这主要是发挥政府投资的乘数

效应，拉动整体经济增长，同时合理配置资源加快落后地区的向前发展，从而缩

短地区间发展差距，为基本公共服务均等化的实现创造条件。第四章研究的是地

方政府投资对基本公共服务均等化的影响。首先是对区域基本公共服务均等的分

析，从省级地方层面上基于财政分权的体制下，以全国三个区域代表省份浙江、

湖北、云南三省为研究的主体，选取公共服务中主要几个项目以及各年人均财政

支出为研究客体，通过测算各指标的变异系数，结合财政制度改革时间段进行相

应分析。结果表明：我国地方政府投资结构和规模在很大程度上受财政分权体制

尤其是分税制改革的影响。在财政分权的背景下，地方政府偏好于投资经济利益

大的项目，从而导致公共产品和服务的供给不足，一方面产生了不同地区间基本

公共服务的不均等，另一方面，即便在某些公共服务水平上差异不大，但却是处

浙江财经学院硕士学位论文

于低水平的。其次将注意力转向政府投资对城乡基本公共服务均等化影响。本节

以浙江省的情况为例，集中从两个方向进行研究分析：一是政府投资影响农村居

民收入进而影响他们的自我保障能力。由于政府资金倾向于对城市的开发和投资

建设，农村偏远地区的建设长期处于滞后状态，农村的发展困难，农民收入水平

低；二是政府投资可以直接提供农村的基本公共服务，提高农村居民的生活水平。

而从现实结果看，农村公共产品和服务的供给并不尽如人意，尤其在医疗、社会

保障方面，还需要政府的大力扶持。

第四部分即第五章,针对以上研究中发现的问题，提出相应的对策建议。首先

要适度增加公益型政府投资，明确各级政府的职权；其次调整政府投资结构，促

进公共服务均等化；再次，完善政府投资监管，提升均等化政策绩效。

关键词：公共服务；均等化；政府投资；公共财政

浙江财经学院硕士学位论文

III

ABSTRACT

Under background condition “To expand domestic demand and guarantee the

growth” in our country, it is a relatively weak research subject to achieve the

equalization of basic public services depending on the support from the government

investment. In fact, the home research on government investment mainly focuses on

how to expand domestic demand which belongs to the efficiency problem. But the

research on promoting the goal of equalization of basic public services is not enough.

Obviously, government investment's function is multiple, but the government

investment function's emphasis point should be different in different nations and the

different historical period. Based on the above understand, and considering our country

concrete national condition, this article carries on a more comprehensive discussion in

the equalization of basic public services from the theory to the practice.

This article research content divides into four part altogether and five chapters

approximately.

The first part is the first chapter: Introduction. It mainly elaborated the background

of the question proposes, the literature summary, the paper’s structure and method, the

innovation and deficiency.

The second part is theoretical analysis, namely the second chapter. Firstly it

discusses the essential theory of the equality of basic public services. It focuses the

intrinsic implication of “equalization” and the question to assurance the value

orientation correctly, then trying to analyze its measurables and the methods. Secondly

it elaborates the elementary theory about government, including the government

investment connotation, goal and scope. Lastly it discusses the relation with the

equality of basic public services. The public finance is the foundation to realize the

equality of public services, and the government investment is an important tool which

makes public finance return “public”. So this chapter tries to the relation through the

junction namely public finance.

The third part is the empirical study part, altogether two chapters, namely the third

and fourth chapter. The research of third chapter is the influence of Central authorities

invests to the equalization of basic public services. This chapter has selected two cases

namely the Four trillion government investment plan and the West Development

strategy investment for the object of study. Through the analysis, in current

development stage, central level’s investment mainly concentrates in the large-scale

浙江财经学院硕士学位论文

investment projects in infrastructure construction. Simultaneously, it also disposes the

resources reasonably to speed up those areas which fall behind. Then it can reduce the

development gap between different zones. The fourth chapter’s research focuses on the

effect to the equalization of basic public services from local government investment.

First part is an analysis about the equalization of basic public services among areas. It

based on the financial decentralization system. And it takes nation three regional

representatives province Zhejiang, Hubei, Yunnan as research subjects and selects the

key public services and the expenditure per capita as the objects for our study. After

measuring the coefficient of variation of each index, we can get some results. It exposes

that our investment structure and size of local government in large part influenced by

fiscal decentralization, especially the impact of tax system reform. In the context of

fiscal decentralization, local governments prefer the projects with much economic

interest. As a result, firstly, it reduces inequalities in basic public services among

different regions, secondly, even if the level of public services in some little difference,

but it is at a low level. After that, we change the attention to the rural areas. This section

takes Zhejiang Province's situation as an example, concentrating on the analysis from

two directions. One is the government investment affects the countryside residents’

income then affecting their self-support capabilities. Because the government finances

the urban development and the investment construction, the remote districts'

construction is at the lag condition for a long time, making the countryside development

difficult. The other is if the government investment provides the countryside directly the

basic services, it can raise the rural resident's living standard. But in fact, the situation is

not satisfying, especially in medical, social security aspect, needing government's

support vigorously.

The fourth part is the last part, namely the fifth chapter, it gives some

countermeasures corresponding to the above problems. Firstly, The government should

increase the public welfare investment moderately, then clearing about the government's authority of

all levels. Secondly, It is necessary to adjust the government investments’ structure to promote the

equalization. Finally, The supervision to government investment is needed to be perfected, then

improving the equalization policy achievements.

Keywords: public services; equalization; government investment; Public Finance

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摘要：

浙江财经学院硕士学位论文I摘要在我国“扩大内需保增长”的背景条件下，依托或借助政府投资手段来实现公共服务均等化目标是一个十分重要但又相对薄弱的研究课题。事实上，国内对政府投资的研究更多地从如何更好地实现“扩大内需保增长”这个效率层面来展开的，而较少从如何更好地促进“基本公共服务均等化”这个公平目标来展开。显然，政府投资的作用是多重的，但在一个国家和地区的不同历史时期，政府投资作用的侧重点理应会有所不同。基于上述认识，结合我国具体国情，本文从理论和实践两个层面对政府投资在促进基本公共服务均等化过程中的重要作用进行了较为全面细致的探讨。本文的研究内容分为四个部分共五章。第一部分为第一章导论。主要阐...

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