农业基础设施供给绩效评价：基于“双QE”框架

Agricultural infrastructure is a public goods characteristic of the first capital. How to improve the performance of the agricultural infrastructure is the necessaries of the modern agricultural development and new rural construction and the construction of public finance in urgent need of research. On the base of agricultural infrastructure supplies theory, setting the development of modern agriculture, rural and urban coordinated development and equal public services as the background, the performance evaluation as the start point, this subject constructs a "double QE" framework which contains quantity, quality, efficiency and equity on agricultural infrastructure performance evaluation. Apply of the capital stock which is measured by agricultural infrastructure investment and perpetual inventory method , measure agricultural infrastructure supplies of the quality construct a comprehensive evaluation index system to measure the agricultural infrastructure supplies quality .Use DEA-Malmquist model to assess the efficiency and dynamic efficiency changes. Use Tyre index to measure the supply of agricultural infrastructure regional differences and equity, on the basis of conducted which is in four dimensional evaluation, evaluate the agricultural infrastructure supplies comprehensive performance. Then, discuss the realized mechanism and practical mode of the infrastructure supplies performance, and finally, propose some conclusions and policy recommendations.

农业基础设施是具有公共物品性质的先行资本。如何提高农业基础设施的绩效，不仅是现代农业发展和新农村建设的需要，也是农村公共财政建设中迫切需要研究的课题。课题以发展现代农业、城乡统筹和公共服务均等化为背景，从绩效评价出发，在农业基础设施供给理论分析的基础上，构建了一个包含数量、质量、效率和公平性在内的"双QE"框架对农业基础设施绩效进行评价。运用农业基础设施投资和永续盘存法测度的资本存量衡量农业基础设施供给的数量，构建一个综合指标体系评价农业基础设施供给质量，运用DEA-Maquist评价其效率水平和动态效率变化，运用泰尔指数测度农业基础设施供给的区域差异和公平性，在四维评价的基础上进行农业基础设施供给的综合绩效评价。接着，探讨农业基础设施供给绩效实现的机制和实践模式，最后提出结论和政策建议。

近10年来，农业基础设施供给数量不断增加，中央财政“三农”累计支出约9万亿元，投入农村水电路气等基础设施建设，新建改建农村公路146.5万公里，改造农村危房1033万户，解决了3亿多农村人口的饮水安全和无电区445万人的用电问题，农村生产生活条件不断改善。但我国农业基础设施仍面临投资规模相对小、投资结构不合理、资金配置效率低、投资决策和管理机制不完善等问题，从农业基础设施的规模、结构和绩效等方面都难以适应现代农业的发展要求。为此，本课题首先从农业基础设施的规模效应、结构效应、技术效应、成本节约效应和空间溢出效应等五个方面，论证了农业基础设施投资的必要性。研究表明：①我国农业基础设施规模的门槛值为54.72%；②不同功能的农业基础设施具有差异化的影响；③农业基础设施也对降低粮食生产成本和调整生产要素投入结构具有重要作用，农业基础设施存量增加1%，玉米、稻谷和小麦平均生产成本分别减少0.102%、0.069%和0.029%；④农业基础设施具有显著的空间依赖特征。其次，结合绩效评价的“4E”标准、“IOO”模型构建了基于“双QE”框架的农业基础设施供给绩效评价体系。从宏观角度利用省级面板数据从供给数量、供给质量、供给效率、供给公平性等四个方面对农业基础设施供给绩效进行研究；并从微观角度对益阳市赫山区团结村农地流转前后村庄小型农田水利设施的供给绩效进行了个案研究。研究表明：①我国农业基础设施供给数量的地区差距明显；②农田水利设施供给数量增加并不能一定导致农业水旱灾害成灾率降低，关键需要有农田水利设施供给质量的保障；③农业基础设施供给效率与经济发展水平并不必然成正比，供给效率具有明显地区差异，而且地区供给的公平性也存在问题；④对于村域内的合作型农业基础设施，必须要求村庄成员采取集体行动，防止“搭便车”行为。最后，为正确处理农业基础设施供给数量、供给质量、供给效率、供给公平性的良性关系，提升农业基础设施供给绩效应，从“扩规模”、“调结构”、“增效益”、“降成本”、“强统筹”和“均等化”等角度提出了有关政策建议。