农业农村发展中的政府与市场、社会：一个分析框架

统筹城乡发展要求政府承担促进农业农村发展的责任。我国政府以国家干预、政府主导为特征的农业农村政策,在农业发展、农民增收和城乡协调发展等方面都已取得较大进展,但现有农业政策在提高农业生产率方面的限度日益显现。有鉴于此,急需构建一个政府调控和引导农业农村发展的新的分析框架,在其中,政府需要界分与市场、农村社会组织之间的行为边界,在充分尊重市场配置资源的基础性作用、尊重农村社会自主管理的基础上,体现政府职能的＂兜底＂特征;而且,政府在构建市场/社会运行的基本制度、匡正和补充市场/社会失灵、培育市场/社会主体等职能中需要进行逻辑先后排序。应用这一新分析框架,加强和改善政府对农业农村发展的调控和引导,就需要基于农业市场化取向改革农村基本经营制度和农业支持保护体系,注重对农业生产市场主体的培育;需要以政府为主体构建城乡一体化的基本公共服务体系,创新农村社会管理体制,充分调动社会力量参与公共事务治理;需要基于城乡一体化要求重构政府行政管理体制,确保农业农村发展政策的落实。

The Relationship between Government on One Side and the Market and Society on the Other in China’s Agricultural and Rural Development：An Analytical Framework

The integrated development of urban and rural areas requires that the government take responsibility for the overall development of the countryside. Chinese agricultural and rural policies characterized by state intervention and government leadership have played an important role in promoting agricultural development and increasing farmers’ incomes as well as balancing development in urban and rural areas. However, the effectiveness of current agricultural policies in promoting agricultural productivity is now clearly leveling off. Given this situation, the authors argue that it is imperative to construct a new analytical framework featuring government regulation and guidance of agricultural and rural development. In this framework, the government must clearly define the boundaries between its activities and those of the market and rural social organizations. While fully respecting the fundamental role of the market in allocation of resources and rural self-management, the government should exercise its power as a backstop. Further, the government needs to establish a logical sequence for government functions such as formulating the basic operating system of the market and society, correcting market failure and social dysfunction and cultivating market/social entities. To use this new analytical framework to strengthen and improve its regulation and guidance of agricultural and rural development, the government needs to reform the basic rural management and agricultural support and protection systems and to pay attention to the cultivation of market entities in agricultural production on the basis of agricultural marketization. Furthermore, it needs to construct a basic urban-rural integrated public service system with the government as the leading actor, carry out innovations in the management system of rural society and fully mobilize the social forces to take part in the administration of public affairs. It also needs to reconstruct the system of government administration and management to ensure the thorough implementation of agricultural and rural development policies.