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积极财政政策更需提高资金使用效率

2016-12-27 11:09:04   

原标题:积极财政政策更需提高资金使用效率

《中国经济周刊》特约评论员 葛丰

(本文刊发于《中国经济周刊》2016年第50期)

今年的中央经济工作会议强调,明年要继续实施积极的财政政策。

这一部署是保持稳中求进工作总基调的有力保障,其必要性体现在:从总量调控角度来看,由于中国经济仍在下行探底过程中,经济增长内生动力不足的问题客观存在,因此有必要通过反周期宏观经济政策托底,为坚持供给侧结构性改革营造和谐稳定的基础环境。

再从具体政策选择来看,延续多年事实性宽松的货币政策本身副作用已开始显现,同时,现阶段宏观调控的政策取向除了要适度扩大总需求与总供给,还需要不断提高政策发力的定向性。因此,这就决定了更适于用作总量调控的货币刺激,必须并且应该让位于更为积极的财政政策。

当然,评判任何政策取舍,除了要看有无必要,还要再看是否可行。中国实施更积极的财政政策,目前而论总体条件尚属宽裕。因为迄今为止,包括地方政府性债务在内的政府整体狭义债务率尚不到50%,显著低于欧美国家普遍水平(突破60%“上限”的国家比比皆是),因此即使未来赤字率水平适度突破3%,总体仍处较安全区间。

但是这种总体安全的前景判断,并不意味着积极财政政策实施过程中全无困难、全无风险。择其要者,这个过程中需要高度关注的不利因素主要有两项,其中一是,随着财政收入增速放缓,以及财政支出力度加大,中国的财政平衡度在收、支双重挤压下不仅持续走低,而且还呈现出很明显的加速下行趋势。如果再考虑到房地产调控政策效应陆续释放,未来时期财政收支矛盾将更为突出。

再者,中国是一个大国,地区间的差异非常明显。目前在一些地区,虽然债务增长的速度部分得到控制,但依然存在债务率偏高、债务风险持续累积等较突出问题。因此对于这些地方而言,未来时期不只是财政政策的运作空间会日渐收缩,甚至不排除债务风险爆发的可能性。

化解上述不利因素的最基本途径,是进一步提高财政资金使用的效率,其必要及可行性在于:其一,中国的财政收支规模非常庞大;其二,中国的财政资金使用效率相对较低。因此,由这两点共同决定,中国的财政支出优化空间很大,通过效率带来的增益将非常可观。

提高财政资金使用效率的具体举措不一而足,譬如推进财政资金统筹使用,改变资金使用“碎片化”现象;重新排定资金使用优先顺序,重点保障基本公共服务投入;优化预算计划编制,探索试行中期滚动预算安排等等。

而这些举措要真正落到实处,终究还是要在形势倒逼下更坚决地依托体制机制改革,打破利益藩篱,转变政府职能,创新绩效管理,强化监督问责,从而在根本上体现与贯彻公共财政“取之于民、用之于民”基本宗旨。

(责编:杨虞波罗、沈光倩)

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