共同富裕视角下基本公共服务均等化的制度性梗阻与纾解路径

Institutional Obstacles and Relief Paths of Equalization of Basic Public Services from the Perspective of Common Prosperity

加强制度体系建设,扎实推进基本公共服务均等化,是实现共同富裕的现实着力点。当前,中央与地方虽然已初步形成了一套层次分明、功能耦合的基本公共服务均等化制度体系,但随着改革进入“深水区”,也出现了一系列制度性瓶颈问题。基于“多层嵌套”的制度分析思想,从顶层设计规则到具体操作规则、从正式规则到非正式规则,当前我国基本公共服务均等化的制度性梗阻主要表现在四个层面:“法律规范制度”层面的立法层次整体偏低、法规规章条款泡沫化、程序性和配套性规范缺位;“政策制度”层面的“条块分割”的碎片化公共决策体制、公众需求表达渠道受限、地区间横向协同机制缺失;“配套制度”层面的政府间事权和财权不匹配、绩效评估体系不完善、户籍制度与公共福利捆绑;“非正式制度”层面的社会资本参与供给存在准入壁垒、地方政府官员的双重角色冲突。破解上述制度性梗阻的纾解路径主要包括:构建基本公共服务均等化的梯度标准体系、政策参与机制、质量监测体系、财力可持续均衡保障机制。

Achieving the goal of common prosperity lies in the construction of the institutional system and steady promotion of the equalization of basic public services. Currently,the central and local governments have initially formed a set of institutional systems with distinct levels and integrated functions. However,as the reform enters the“deep water area”,a series of bottleneck problems have also emerged. Based on the system analysis of“multi-layer nesting”,from the top-level design rules to the specific operation rules,from the formal rules to the informal rules,it has been found that the current institutional obstruction of the equalization of basic public services in China is mainly demonstrated on four levels. In terms of the“legal system”,there is the overall low level of legislation,the foaming of regulations and rules,and the lack of procedural and supporting norms. In terms of the“policy system”,there is the fragmented public decision-making system,limited channels for expression of public needs,and a lack of inter-regional horizontal coordination mechanism.In terms of“supporting system”,there is the mismatch between government powers and financial rights,the imperfect performance evaluation system,and the bundling of household registration system and public welfare.In terms of“informal system”,there are barriers to social capital participation in the supply and conflict between the dual roles of local government officials. The relief path to break the above-mentioned institutional obstruction mainly includes building a gradient standard system for the equalization of basic public services,a policy participation mechanism, a quality monitoring system, and a sustainable and balanced financial guarantee mechanism.