农村公共品供给中的“民主包干制”:制度安排与运行机制

“Democratic Contract System”in the Supply of Rural Public Goods:Institutional Arrangement and Operating Mechanism

建设有效且成本合理的农村公共品供给制度是乡村建设的关键命题。税费改革后,农村公共品主要采取项目制的供给方式,表现出“制度内自上而下”的行政理性特征,而这难以克服农民不合作的治理难题,陷入公共品供给的“最后一公里”困境。基于此,地方政府通过“以奖代补”的制度激励,将公共品供给中的“预算外协商成本”包干给受益农户,生成了“民主包干制”,塑造了制度内与制度外协同供给的制度安排。通过构建村社责任共同体与公共利益的再造机制、村庄内生性资源的激活机制、协商民主下权利与义务的平衡机制,“民主包干制”得以将公共品供给中外溢的协商成本内部化,厘清了国家与农民的责任边界,有效承接公共财政资源,提高了公共品供给效率。

Building effective and cost-effective rural public goods supply system is a key proposition for rural construction.After the reform of taxes and fees,rural public goods mainly adopt the project-based supply method,which is expressed as the administrative rationality of“top-down within the system”,but it is difficult to overcome the problem of farmers’non-cooperative governance and thus we fall into the“last mile”of the supply of public goods.Based on this dilemma,the local government has contracted the“extra-budgetary negotiation cost”in the supply of public goods to the beneficiary farmersthrough the system incentive of“reward for subsidy”,thus creating a“democratic contract system”and shaping the coordinated supply of both inside and outside the system.By constructing a mechanism for rebuilding the community of village social responsibility and public interests,an activation mechanism for village endogenous resources,and a mechanism for balancing rights and obligations under negotiation democracy,the“democratic contract system”can internalize and clarify the spillover negotiation costs in the supply of public goods.The responsibility boundary between the state and farmers has been clarified,public financial resources have been effectively employed and the efficiency of public goods supply has been raised.