农村公共服务供给的国际经验及启示——基于可持续生计视角

The Experience and Enlightenment of Foreign Rural Public Services Supply—From the Perspective of Sustainable Livelihood

不发生规模性返贫是一条底线性任务,农户生计脆弱性是致贫返贫的重要内因,有效的公共服务供给是缓解农户生计脆弱性的有效途径。鉴于脱贫地区的公共服务供给制度相当程度上沿用了脱贫攻坚期的标准,本文从“可持续生计框架”(SLA)的人力资本、物质资本、社会资本、金融资本和自然资本五个方面展开,通过梳理国外的农村公共服务供给模式,对比当前脱贫地区公共服务供给的现状与不足,提出适合后脱贫时代的公共服务供给机制。研究发现:欧盟、美国、日本、韩国等国家和地区以可持续生计为目标向农村地区提供了精准、有效、适配的农村公共服务,通过全流程保障有效劳动力有效就业、分级推进基础设施建设、链接内源组织与外源资源、开发性金融投入与普惠性金融教育双管齐下、集约化经营与绿色产业发展并行等多项举措有针对性地提升了可持续生计。由此形成了以支持农村社区独立发展的“欧美模式”和以城镇化建设为目的、鼓励官办协会分担治理任务的“日韩模式”,均可视为对不同发展阶段和政策目标下农村公共服务供给机制的有机探索。基于国际经验,本文提出扶贫开发模式创新、公共服务供给主体创新和管理考核制度创新三点政策建议。

Preventing massive return of poverty is a bottom-line task.The vulnerability of the livelihoods of farmers is an important internal cause of their being trapped in poverty and returning to poverty.Effective public service supply is an effective way to alleviate the vulnerability of the livelihoods of farmers.Given that the supply system of public services in poverty-stricken areas of China still follows the standards of the poverty alleviation period in the past to a considerable extent.Focusing on human capital,physical capital,social capital,financial capital,and natural capital under the sustainable livelihoods framework(SLA),this research summarizes supply models of foreign rural public services,compares the current status and deficiencies of public service supply in the poverty-stricken areas of China,and proposes a public service supply mechanism suitable for the post-poverty era.It is found that the United States,Japan,South Korea,and European countries have provided accurate,effective,and appropriate rural public services to rural areas with the goal of sustainable livelihoods.Several measures,such as protection of effective employment of effective labor at each link,promotion of infrastructure construction at different levels,connection of internal and external resources,synchronization of development-oriented financial investment and inclusive financial education,and intensive management in parallel with the development of green industries,have precisely improved sustainable livelihoods.As a result,the“European and American model”that supports the independent development of rural communities and the“Japanese and Korean model”that encourages government-run associations to share governance tasks for urbanization can be regarded as meaningful attempts to develop rural public service supply system at different development stages and under different policy goals.Based on international experience,this research puts forward three policy suggestions,namely,innovation on the model of poverty alleviation and development,innovation on public service providers,and innovation on management and assessment systems.