摘要

基本公共服务区域差异是当前推进基本公共服务均等化面临的主要问题。建立并完善基本公共服务均等化机制是新时代背景下实现区域协调发展这一国家重大战略的切入点，也是共享改革开放成果的重要体现。改革开放40多年来，随着中国经济社会的巨变，社会主要矛盾转化为人民日益增长的美好生活需要和不平衡不充分发展之间的矛盾。其中，区域不均衡是中国经济发展不平衡的主要体现。长期以来，区域差异问题无论在学术界还是在实践中都备受关注。但是，区域差异通常被视为收入分配问题。而伴随人们消费结构的升级，关于区域差异问题的探讨不应再局限于收入水平，而应扩展为人均福利水平。现实中，区域经济增长差异不能完全平衡，但人均福利水平可以趋于均等。

基本公共服务区域差异实质上就是基本公共服务供给的区域差异。基本公共服务供给是一个历史范畴，在不同的历史时期其内涵各有不同。新中国成立后，基本公共服务供给的内涵和外延在经济增长和体制改革的进程中不断扩大，基本公共服务水平也在不断提升。其中，经济发展水平、财政体制变革、政府职能转型、城镇化进程等因素发挥了重要的作用。为此，本书从理论和实证的角度，对标公平与效率建立双系统的研究框架，对当前中国基本公共服务供给已然状态进行全面评价。在此基础上，通过实证分析，探究基本公共服务供给水平的影响因素、改进目标和应然状态，力求有效地解决基本公共服务供给公平与效率间的协同问题。

目前，已有的研究成果对基本公共服务供给指标体系的构建没能形成统一的结论。特别是原来公共教育服务的内涵界定已经不能满足当今智能化、信息化飞速发展对人力资本基本能力的需求，而科学技术公共服务的考察也相对薄弱。为此，本书考虑社会公众对生存、发展更高水平保障的需求，在教育服务领域拓展了以往研究中对“基础”的划定范围，同时增加了科学技术服务中对政府技术保障监督环节的考察，并以此为基础构建了七大类一级指标、二十九个二级指标的评价指标体系。

通过对中国基本公共服务供给区域差异变异系数、基尼系数、泰尔指数的考察，中国基本公共服务供给差异水平呈现缩小态势。从具体区域来看，东部地区差异最大，中部地区差异最小。中部地区基本公共服务供给均等化程度最为明显，中部地区泰尔指数贡献率一直处于较低水平波动的状态，说明中部地区各省份供给情况不是造成中国基本公共服务供给差异的主要来源。东部地区对基本公共服务供给总体差异的贡献最大，而且这种态势还得以延续，并呈小幅度上涨，说明东部地区是中国基本公共服务供给差异的主要来源地区。西部地区差异水平降幅最小，其差异贡献率增长幅度最大，表明西部地区各省级行政单位基本公共服务供给差异情况较为复杂，可能存在一定的分化。

进一步的收敛性检验显示：全国基本公共服务供给水平存在β收敛。其中，东部、中部、西部三大地区基本公共服务供给的绝对β收敛速度，从快到慢依次是西部、东部和中部，并形成三大“收敛俱乐部”。在考虑条件因素作用的情况下，基本公共服务供给在截面回归和固定效应面板回归均存在条件β收敛，收敛速度较绝对β收敛要快一些。表明条件因素的作用影响了收敛速度，综合来看有利于我国基本公共服务均等化目标的实现。

与此同时，现阶段中国基本公共服务供给水平存在地区间聚集特点。这一特征通过进行系统聚类分析得到充分显示。全局 Moran's I 和全局Geary's C检验表明，中国基本公共服务供给水平存在显著的空间自相关。局部空间自相关分析Getis-Ord指数G则显示，天津、河北、上海和江苏是基本公共服务供给高水平聚集区域；四川、贵州、云南、青海和新疆是基本公共服务供给低水平聚集区域。

中国基本公共服务供给指数水平整体受城镇化率、人均GDP水平、财政自给率和地方财政支出占比影响。邻近省份的地方财政支出占比高，可能会导致本省的基本公共服务供给指数有所下降。邻近省份地方财政支出相对水平高，意味着其地方政府财政活动的操作性强，致力于经济发展的投资意愿和能力也强。在区域之间财政竞争背景下，可能造成对本省经济资源、人力资本的争夺，会影响本省基本公共服务供给水平。在对东部、中部、西部地区进行考察时，城市人口密度、财政自给率对东部地区的影响程度不及中部地区，总抚养比对西部地区的影响程度要大于中部地区。

基本公共服务财政资源配置和绩效也具有较强的区域差异特征。通过三阶段DEA模型评价基本公共服务供给效率区域差异的结果表明，中国基本公共服务供给效率水平从高至低依次是东部、中部、西部地区，说明基本公共服务供给指数水平较高、基本公共服务推进较好的区域，地方政府更能在供给过程中不断地提升其运营管理能力，效率水平得以提高，“干中学”理论得到验证。中部、西部地区在提高基本公共服务供给经营管理水平和追求规模经济方面仍然任重而道远。随着基本公共服务供给民生工程的深入推进，各地区财政资金使用效率与开展初期相比出现不同程度下降，政府工作难度加大。实证结果表明，政府应注重城市人口聚集，提升财政自给率水平，在推进城镇化进程中，注意防范城镇化过快有可能带来的农业人口进城出现拥挤效应等治理方面的问题，客观看待经济水平提高有可能加大公共资源供给成本，从而带来效率损失问题。

根据上述实证分析结果，结合目前中国现实情况，对标公平与效率双系统研究框架，本书提出如下对策建议：第一，确立基本公共服务供给法制化体系，以法律形式保障基本公共服务优先供给，严格执行基本公共服务供给的绩效评价机制，注重效率的考察，避免公共资源浪费；第二，完善公共财政制度建设，加大对欠发达区域地方财源的培植力度，提高其财政自给率，鼓励各区域主体开展良性竞争，促进人口合理流动；第三，适度推进基本公共服务供给市场化改革，鼓励多元主体共生、多种渠道共融的资金供给模式，同时注入新的管理经验，提高供给效率水平；第四，在政府决策环节增强民主决策力度，鼓励公民参与，提升基本公共服务供给有效性。实现基本公共服务均等化目标，促进区域协调发展向更高水平和更高质量迈进。

Abstract

Regional differences in basic public service are the main problems in promoting the equalization of basic public service.Establishing and perfecting the equalization mechanism of basic public service is the breakthrough point of realizing the major national strategy of regional coordinated development under the background of the new era，it is also an important manifestation of sharing the achievements of reform and opening up.In the past 40 years of reform and opening up，with the great changes of China's economy and society，the main social contradiction has been transformed into the the people's growing need for a better life and the unbalanced and inadequate development.Among them，regional disproportion is the main manifestation of unbalanced economic development in China.For a long time，regional disparity has attracted much attention both in academic circle and executive department.However，regional differences are generally regarded as the problem of income distribution.With the improvement of people's consumption structure，the discussion on regional differences should not be limited to income level，but should be extended to the level of per capita welfare.In reality，the difference of regional economic growth can not be completely balanced，but the per-capita welfare level tends to be equal.

Regional differences in basic public service are essentially regional differences in the supply of basic public service.The supply of basic public service is a historical category with diverse connotations in different historical periods.After the founding of New China，the connotation and extension of basic public service supply has been expanding in the process of economic growth and system reform.The level of basic public service is also constantly impro ving.Among them，the level of economic development，the reform of financial system，the transition of government functions，and the process of urbanization play an important role in the supply of basic public service.Therefore，from the theoretical and empirical point of view，this paper establishes a dual system research framework for the benchmark of equity and efficiency，then，it makes a comprehensive assessment of the current state of the supply of basic public service in China.On this basis，through empirical analysis，this paper explores the influencing factors、the improvement objectives and the status quo as it should be，and strives to effectively solve the problem of synergy between equity and efficiency of basic public service provision.

At present，the existing research results fail to form a unified conclusion on the construction of the index system of basic public service supply.Especially the original definition of the connotation of basic education service can no longer meet the needs of the rapid development of intelligence and information technology for the basic quality of human capital，and the public service of science and technology is also relatively weak.Therefor，this paper considers the public's demand for a higher level of security for survival and development.It expands the scope of“basic”measurement in educational service.At the same time，the contents of government technical support and supervision in scientific and technological service are newly added.On this basis，the evaluation index system of seven categories of first-level indicators and twenty-nine second-level indicators is constructed.

The regional differences of basic public service supply are measured by coefficient of variation，Gini coefficient and Theil index.Through the results，we find that the gap level of basic public service supply in China is shrinking.Seen from the specific regional plate，the eastern region has the greatest difference and the central region is the smallest.The degree of equalization of basic public service supply in the central region is the most obvious.The contribution rate of Theil index in the central region has been fluctuating at a low level，which shows that the supply situation of provinces in the central region is not the main source of the difference in the supply of basic public service in China.The east ern region contributes the most to the overall difference，and this trend can be continued，with a small increase.It shows that the eastern region is the main source of the difference in the supply of basic public service in China.The western region has the smallest decline in the level of disparity，and the growth rate of its contribution to disparity is indeed the largest.It shows that the supply gap of basic public service in the western provinces is more complex，and there may be some polarization.

Further convergence test shows that the supply level of basic public service in China has β convergence.The absolute β convergence rate of basic public service supply in the three regions is in the order of West，East and Central，and three convergence clubs are formed.Conditional β convergence test results show constringency in both cross-section regression and fixed-effect panel regression，convergence rate is faster than absolute β convergence rate.It shows that the effect of conditional factors affects the convergence rate，which is conducive to the realization of the goal of equalization of basic public service in China.

Furthermore，at the present stage，the supply level of basic public service in China has the characteristics of regional agglomeration.This feature is fully demonstrated by systematic clustering analysis.The global Moran's I and Geary's C test show that there is significant spatial autocorrelation in the supply level of basic public service in China.According to the index of local spatial autocorrelation Getis-Ord's G analysis，Tianjin，Hebei，Shanghai and Jiangsu are high-level aggregation areas of basic public service supply; Sichuan，Guizhou，Yunnan，Qinghai and Xinjiang are low-level aggregation areas of basic public service supply.

The supply index level of basic public service in China is affected by urbanization rate，per capita GDP level，financial self-sufficiency rate and the proportion of local fiscal expenditure.The higher the relative level of local fiscal expenditure in adjacent provinces，it will lead to a decline in the BPS index of this province.The higher the level of local fiscal expenditure in adjacent provinces means that financial activities of local governments are more operable，local governments have more willingness and ability to invest in economic develop ment.Under the background of interregional fiscal competition，it may lead to competition for economic resources and human resources in the province，which will affect the level of basic public service supply in the province.When investigating the eastern，central and western regions，the impact of urban population density and financial self-sufficiency rate on the eastern region is less than that on the central region，and the total dependency ratio has a greater impact on the western region than that on the central region.

The allocation of financial resource and its performance also have strong regional differences.Three-stage DEA model is used to evaluate the regional differences in the efficiency of basic public service supply.From the perspective of the efficiency level of basic public service supply in China，from the highest to the lowest is the eastern region，the central region and the western region.It shows that the supply index of basic public service is relatively high，local governments can continuously improve their operation and management ability in the supply process，and the efficiency level can be improved.The viewpoint of“learning by doing”theory can be verified.The central and western regions have a long way to go in improving the management level of basic public service supply and pursuing economies of scale.However，with the deepening of the project of basic public service for people's livelihood，the efficiency of financial allocation of local governments has decreased in varying degrees compared with the early stage，and the government's work is more difficult.Empirical results show that the government should pay more attention to the agglomeration of urban population and improve the level of local financial self-sufficiency.At the same time，in the process of urbanization，the government should pay attention to the prevention of such governance issues as the crowding effect of the agricultural population entering the city if urbanization is too fast，and take an objective view that the improvement of economic level may increase the cost of public resources supply，thus resulting in efficiency loss.

According to the empirical analysis results，combined with the current situation in China，this paper puts forward the following suggestions based on the framework of benchmarking dual-system research: Firstly，we should establish a legal system for the supply of basic public service，guarantee the priority supply of basic public service，strictly implement the performance evaluation mechanism for the supply of basic public service，pursue the inspection of efficiency and avoid the waste of public resources.Secondly，we should improve the public finance system，strengthen the cultivation of local financial resources in underdeveloped regions，raise the level of financial self-sufficiency rate，encourage the main bodies of various regions to carry out healthy competition and promote the rational flow of population.Thirdly，we should strengthen market-oriented reform，encourage the application of multi-subject co-existence and multichannel co-financing mode of capital supply，and inject new management experience to improve the level of supply efficiency.Fourthly，we should strengthen democratic decision-making in government decisions，encourage citizens to participate actively，and ultimately enhance the effectiveness of basic public service supply.It is hoped that the goal of equalization of basic public service will be achieved and the coordinated development of all regions will be strided forward to a higher level and quality.