STUDY ON ESTABLISHING A MONITORING AND EVALUATION SYSTEM FOR NEW SOCIALIST COUNTRYSIDE CONSTRUCTION

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2 STUDY ON ESTABLISHING A MONITORING AND EVALUATION SYSTEM FOR NEW SOCIALIST COUNTRYSIDE CONSTRUCTION Agricultural Information Institute Chinese Academy of Agricultural Sciences December, 2008 I

3 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction The views expressed in this book are those of the authors and do not necessarily reflect the views and policies of the Asian Development Bank or its Board of Governors or the governments they represent. 本书中所述为作者的观点, 不一定代表亚洲开发银行 亚行理事会或其代表的政府的观点和政策 The Asian Development Bank does not guarantee the accuracy of the data included in this publication and accepts no responsibility for any consequence of their use. 亚洲开发银行不担保本出版物中所含数据的准确性, 而且对使用这些数据所产生的后果不承担责任 Use of the term country does not imply any judgment by the authors or the Asian Development Bank as to the legal or other status of any territorial entity. 使用术语 国别 不代表作者或亚洲开发银行对任何地域实体的合法性或其它法律地位的任何判断 II

4 Acknowledgements Acknowledgements This study, "Establishing a Monitoring and Evaluation System for Socialist New Countryside", was funded by Asian Development Bank (ADB) technical assistance TA4790-PRC: Facility for Reform Support and Capacity Building. The study commenced in November 2006 and the draft final report was submitted in early December Incorporating domestic and foreign experts' comments and suggestions, the report was finalized by the end of Ms. Nie Fengying, Professor, Director of International Information Division of Institute of Agricultural Information of CAAS, led a research team that consists of Mr. Chen Yonghong, Specialist of China Rural Technology Development Center of MOST; Ms. Jiang Nan, Specialist of Research Center for Rural Economy of Ministry of Agriculture; and others. Mr. Zhang Xuebiao worked as a research assistant with responsibility for coordination, communication, and workshops. Mr. Zhuang Jian, Senior Economics Officer of ADB Resident Mission in the PRC (PRCM) supervised the study on behalf of ADB. The Ministry of Science and Technology (MOST) provided guidance and support at various stages. Special thanks go to Mr. Liang Xuefeng, Director of Program and Regional cooperation Department of PRCM, and Mr. Chen Liangyu, Deputy Director General of China Rural Technology Development Center of MOST for their support and guidance. The team would like to thank all relevant officials and experts for their support and contribution. They are Ms. Gan Mei, Project Analyst of PRCM; Mr. Wu Yuanbin, Former Director General of China Rural Technology Development Center of MOST; Mr. Yu Shuangmin, Director of Spark and information division of China Rural Technology Development Center of MOST; Mr. Wu Peng, Project Officer of UNDP; Mr. Shun Yinhong, Project Officer of IFAD; Ms. Wang Weijing, Project Officer of WFP; Mr. Guo Jianjun, Director of Administration division of Development Research Center of the State Council; Mr. Cao Qingbo, Director of Data division of Information Center of Ministry of Agriculture; Ms. Zhong Yongling, Director of Analysis division of Information Center of Ministry of Agriculture; Ms. Yang Na, Deputy Director of Statistic and Information Division of Market and information department of Ministry of Agriculture; Mr. Zhan Huilong, Director of Agricultural Development and Investment research division of Chinese Academy of Agricultural Engineering; Mr. Xiao Yunlai, Director of Agricultural Planning division of Chinese Academy of Agricultural Engineering; Mr. Zhang Lubiao, Director of International Cooperation Department of Chinese Academy of Agricultural Science (CAAS); Ms. Kan Lei, and Ms. Wang Caiyun of PRCM. III

5 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction The team would like to extend thanks to experts who provided valuable suggestions and ideas for the study. Those experts include Mr. Mei Fangquan, Executive Vice Director of State Food and Nutrition Consultant Committee; Mr. Chen Xiwen, Director of Central Rural Work Leading Group; Mr. Li Bingkun, Director of Agricultural Department of Central Policy Research Office; Mr. Hu Hengyang, Deputy Director-Genenal of Rural Department of National Development and Reform Commission; Mr. Xu Xiaoqing, Deputy Director of Agricultural Department of Development Research Center of the State Council; Mr. Li Binglong, Professor of China Agricultural University; Mr. Tan Xiangyong, President of Beijing Technology and Business University; Mr. Fang Yu, Former Director of Information Center of Ministry of Agriculture; Mr. Zhang Xiangshu, Professor of Renmin University; Mr. Fang Tiankun, Professor of Shenyang Agricultural University; Mr. Lei Yushan, Director of Shaanxi Rural Science & Technology Center; Mr. Wang Yongde, Director of Rural Development division of Chongqing Science & Technology Commission; Mr. Gu Jie, Director of Rural Work Office of the People s Government of Suzhou; and Mr. Han Fuming, Director-General of Arhorchin Banner Land and Resources Bureau of Inner Mongolia. IV

6 报告说明 社会主义新农村建设评价指标体系研究及应用 是在亚洲开发银行( 亚行 ) 技术援助项目 (TA4790-PRC) 的资助下完成的 该项研究于 2006 年 11 月正式启动,2008 年 12 月完成终期报告草稿 在召开研讨会并征求国内外专家意见的基础上形成最终报告 本研究由中国农业科学院农业信息研究所聂凤英研究员作为专家组组长主持开展, 科技部中国农村技术开发中心陈永红先生和农业部农研中心姜楠女士共同参与了本项研究 中国农业科学院农业信息研究所张学彪先生负责项目的沟通协调并组织召开研讨会 亚行驻中国代表处高级经济学家庄健先生代表亚行监督管理该项研究 科技部在该项研究的各个阶段提供了具体指导和大力支持 特别要感谢亚行驻中国代表处规划与区域合作部主任梁雪峰先生以及科技部中国农村技术开发中心副主任陈良玉先生给予的指导和支持 还要感谢下列人员对本研究所做出的贡献 : 亚行驻中国代表处项目分析师甘美女士, 科技部中国农村技术开发中心原主任吴远彬先生, 科技部中国农村技术开发中心星火与信息处处长于双民先生, 联合国开发计划署项目官员吴鹏先生, 联合国国际农业发展基金会项目官员孙印红先生, 联合国世界粮食计划署项目官员王蔚菁女士, 国务院发展研究中心农村部综合处处长郭建军先生, 农业部信息中心数据处处长曹庆波先生, 农业部信息中心分析处处长钟永玲女士, 农业部市场信息司统计信息处副处长杨娜女士, 农业部规划设计院农业发展与投资研究所所长詹慧龙先生, 农业部规划设计院农业规划所所长肖运来先生, 中国农业科学院国际合作局局长张陆彪先生, 亚行驻中国代表处阚磊女士和王彩云女士 感谢为本研究提供了宝贵建议和启发的各位专家, 他们是 : 国家食物营养委员会常务副主任梅方权先生, 中央农村工作领导小组组长陈锡文先生, 中共中央政策研究室农村部部长李炳坤先生, 国家发改委农村司副司长胡恒洋先生, 国务院发展研究中心农村部副部长徐小青先生, 中国农业大学教授李秉龙先生, 北京工商大学校长谭向勇先生, 农业部信息中心原主任方喻先生, 中国人民大学教授张象枢先生, 沈阳农业大学教授方天堃先生, 陕西省农村科技开发中心主任雷玉山先生, 重庆市科委农村发展处处长王勇德先生, 苏州市人民政府农村工作办公室主任顾杰先生, 和内蒙古阿鲁科尔沁旗国土资源局局长韩福明先生 V

7 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction CONTENTS SUMMARY 1. Background 1.1 The introduction of new socialist countryside construction 1.2 Methodology 1.3 Research framework 2. Development of evaluation system for NSCC 2.1 Principle 2.2 Train of thought and framework 3. Selection of assessment method 3.1 Method for non-dimensional quantities of appraisal indicators 3.2 Identification of the weight for indicators 4. Application analysis on indicators for NSCC 4.1 Evaluation on NSCC development in five themes 4.2 Evaluation on NSCC development at national and provincial level 4.3 Evaluation on NSCC development in typical area 5. Arrangement of the indicators at village level and its application 5.1 Appraisal indicator system at village level 5.2 Assessment on NSCC development at village level 6. Conclusions 6.1 Developing production: great gaps 6.2 Comfortable life: different levels 6.3 Rural civilization: heavy responsibility 6.4 The overall cleanliness of villages: still too much to be done 6.5 Democratic management: significant achievements 7. Issues and thought on NSCC 7.1 The main body of NSCC VI

8 Contents 7.2 Realization schedule of NSCC 7.3 Bottleneck of NSCC 7.4 Primary objective of NSCC 7.5 Regional difference of NSCC 7.6 Pilot villages of NSCC 8. Countermeasures and suggestions 8.1 Countermeasures and suggestions on central government in promoting NSCC 8.2 Countermeasures and suggestions on provincial or municipal government in promoting NSCC 8.3 Countermeasures and suggestions on villages in promoting NSCC Reference VII

9 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction 目 录 摘要一 背景 ( 一 ) 新农村建设的提出 ( 二 ) 研究方法 ( 三 ) 研究框架二 新农村建设评价体系构建 ( 一 ) 建立评价指标体系的原则 ( 二 ) 指标体系的设计思路和框架三 评价方法的选择 ( 一 ) 评价指标无量纲化处理方法 ( 二 ) 指标权重的确定方法 ( 三 ) 综合评价模型四 新农村建设指标应用分析 ( 一 ) 分系统评价新农村建设发展水平 ( 二 ) 全国及各地区新农村建设发展水平评价 ( 三 ) 典型区域新农村建设发展水平评价五 新农村建设村级指标设置与评价 ( 一 ) 村级评价指标体系 ( 二 ) 村级新农村建设评价六 主要结论 ( 一 ) 生产发展 : 差距很大 VIII

10 目录 ( 二 ) 生活宽裕 : 参差不齐 ( 三 ) 乡风文明 : 任重道远 ( 四 ) 村容整洁 : 积欠太多 ( 五 ) 管理民主 : 成效显著七 新农村建设的问题与思考 ( 一 ) 关于新农村建设的主体 ( 二 ) 关于新农村建设的实现时间 ( 三 ) 关于新农村建设的瓶颈 ( 四 ) 关于新农村建设的首要目标 ( 五 ) 关于新农村建设的地区差异 ( 六 ) 关于新农村建设的试点村八 对策建议 ( 一 ) 中央政府推进新农村建设的对策建议 ( 二 ) 省或市县推进新农村建设的对策建议 ( 三 ) 乡村推进新农村建设的对策建议参考文献 IX

11 Summary SUMMARY The new socialist countryside construction (NSCC) of China plays an important role in pushing forward rural advancement and promoting the harmonious society development, which is a complex and systemic project with extensive contexts, a large number of difficulties and heavy tasks. Much effort should be made by the whole society. Therefore, based on the better understanding of the connotation of NSCC, a set of integrated indicator systems need to be developed according to the theoretic framework and dynamic attributes of NSCC. It has important significance for evaluating and measuring the development process of NSCC, finding out problems and constraints, advancing measures and policy recommendations. The monitoring indicator system including five subsystems of developing production, improving living standards, fostering a civilized social atmosphere, improving the overall cleanliness of villages, and exercising democratic management, with 29 indicators, was developed in the study. The evaluation results showed that the national comprehensive development level of NSCC reached 65.9%. The average development level in aspects such as developing production, improving living standards, fostering more civil behavior, improving the overall cleanliness of villages, and exercising democratic management reached 49.7%, 67.5%, 89.8%, 64.9% and 85.9%, respectively. As for most of the indicators for developing production, improving living standards, improving the overall cleanliness of villages, their value was relatively low, while the value of indicators for fostering a civilized social atmosphere and exercising democratic management was high. The development level of NSCC varies in different regions. The comprehensive evaluation index of Beijing ranked first, with a difference of 53.7% from the last, being Tibet. The development level of 10 provinces all over the country was higher than the national average level, while the other 21 provinces were lower. Among the provinces, the gaps in relation to developing production and improving living standards were large, while much smaller in relation to fostering a civilized social atmosphere, improving the overall cleanliness of villages, and exercising democratic management. In terms of the development in various regions, the development level of eastern China reached 76.3%, higher than central and western China (62.0% and 52.67%, respectively). Regarding each indicator, the value of indicators for developing production and improving living standards ranged greatly in eastern, central and western China, while the rest were similar. 1

12 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction Based on the application of monitoring indicators, a case study was carried out in Shandong, Chongqing, Liaoning, Shaanxi, Jiangsu and Inner Mongolia. Indicators at village level were identified according to the data from the typical surveys. The projection results indicated that the development level of two villages in Jiangsu province ranked top, two villages in Liaoning province followed. The development of the other surveyed villages lagged behind. The development level of each surveyed village in relation to developing production and improving living standards complied with the average development level of six provinces mentioned above. This contrasted with the development level of other aspects differed from that at provincial level to a large extent. The conclusions were drawn that development concept, management systems, resources endowment, economic development, population, policy restrictions etc. directly affect NSCC of China. NSCC needs to be pushing forward at various levels of nation, province and village. 2

13 Background 1. Background 1.1 The introduction of new socialist countryside construction The new socialist countryside construction (NSCC) was introduced in a new period and at a new stage of China s development, which has special period context. Firstly,China s grain production and the supply of agricultural commodities have a better foundation, and the development of agricultural production is entering a phase of modern agriculture. Whereas, due to the rapid growth of income and population, the supply and demand of agricultural commodities in China will keep a tight balance in the long term. Secondly, the non-farming sectors rapidly developed with the increasing of farmer s income, leading to the great progress of non-farming sectors in selected rural areas, but the gaps of income and consumption between urban and rural residents tend to be larger. Thirdly, the level of township is rapidly promoted, leading to the infrastructures such as transportation greatly improved in rural areas, particularly in neighboring towns, but the development of public affairs in rural areas lagged behind, and the production and living conditions in rural areas are worse than that in urban areas. Fourthly, the villagers autonomy is improving with the advancement of the democracy construction for rural grassroots, but the general benefit of farmers has not obtained due guarantee. Fifthly, the segmentation system of urban and rural areas is changing; the development of city and industry has accumulated a strong basis for supporting rural development and feeding agriculture in reverse. The need to strengthen the development of agriculture, rural areas and farmers is becoming widely recognized by society as a whole. The new socialist countryside (NSC) reflects a kind of social state with the basis of economic development in the rural community in a given period, and the sign of and advancing society. In comparison with traditional rural economy and planned economy, the basic characteristics of a new countryside are as follows: new habitation environment, new technology environment, new system environment, new work-divided environment and new resident body. The NSC requires developing rural production, deepening rural reform comprehensively, carrying out infrastructure construction, developing rural public affairs, promoting the quality of farmers and increasing farmers income in a diversified manner. 1.2 Methodology Literature review. The background, connotation and related theories of NSCC, as well as national relevant policies, legislations, plans and objectives would be understood based on the literature review. Meanwhile, the method of developing an indicator system and the comprehensive evaluation method were also learned. Expert assessment. Experts selected indicators and decided weights for each indicator. Quantitative research. The econometric modeling and statistical technique were applied. 3

14 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction 1.3 Research framework Basic Analysis Monitoring and Evaluation Syst em fornew Socialist Countryside Background Concept Desk research Indicator System Production Development Normative Analysis Indicators at national provincial level Well-off Life Civilization Rural Culture Tidy Village Democratic Management Indicators at village level Delphi method + AHP + WSS Criterion Application Empirical Analysis Provincial assess Regional assess National assess Case Study Household Analysis Statistic + Survey Conclusions Discussions Policy Recommendations 4

15 Development of evaluation system for NSCC 2. Development of evaluation system for NSCC 2.1 Principle The following four principles should be applied: comprehensiveness and pertinence, the representative and independency, accessibility and operational, measurability and comparability. 2.2 Train of thought and framework Design. Due to the different development level in various regions and main bodies for NSCC, the indicator system may be divided into two levels of nation and village. Content. The assessment contents were arranged according to the development goal of NSCC, i.e. developing production, improving living standards, fostering more civil behavior, improving the overall cleanliness of villages, exercising democratic management. Selection. 31 provinces were selected as collective samples. 12 counties, 25 villages, 605 farmer households were chosen as the typical samples for survey in Shandong, Chongqing, Liaoning, Shanxi, Jiangsu and Inner Mongolia. Indicator system. 29 indicators with important influence and strong relationships were selected and divided into five categories (See Table 2-1). 5

16 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction Table 2-1 Indicator Framework for NSCC Theme Sub-theme Indicator Percentage of Changes of Farmland Developing Production Improving Living Standards Fostering More Civil Behavior Improving the Overall Cleanliness of Villages Exercising Democratic Management Resources and Production Conditions Comprehensive Productivity Development of Non-farming Sectors Income and Consumption Life Condition Health and Medical care Social Welfare IT application Entertainment Education Community Harmony Environmental Condition Transportation Infrastructure Publicity of Village Affairs Decision Making of Village Affairs Total Investment in Fixed Assets in Rural Area Power of Agricultural Machinery Number of Agricultural Technicians per 10,000 people Agricultural Labor Productivity Total Income per Capita in Rural Area Gross Provincial Product per Capita Employment Rate of Non-farming Sectors Per Capita Net Income of Rural Residents Engle Coefficient for Rural Residents Per Capita Qualified Housing Area for Rural Residents Coverage of Rural Residents with Drinking Water from Improved Source Percentage of Villages with Bus Average Life Expectancy Qualified Rate of Rural Basic Medical Condition Coverage Rate of Social Insurance for Rural Residents Coverage Rate of New Cooperative Medical Insurance for Rural Residents IT application Number of Entertainment Stations per 10,000 people Percentage of Expenditure for Education and Entertainment Education of Agricultural Labor Harmony Indicator of Rural Community Usage Rate of Clean Energy Usage Rate of Standard Toilet Percentage of Harmlessly Processed Dejecta Improved Road Rate Satisfaction for Publicity of Village Affairs Consummation of Village Autonomous Regime Election of Communist Party 6

17 Selection of assessment method 3. Selection of assessment method 3.1 Method for non-dimensional quantities of appraisal indicators In order to achieve the development level of NSC for each indicator, the observed indicators need to be non-dimensional quantities. The detailed measures are as follows: I. Efficiency coefficient transformation The standard value of each indicator is set as x ( h) firstly, some low level value as x ( s), then xij x( s) the transformation formula xij = x( h) x is used to standardize the indicator, while x ( s) ij is the standardized data, x ij [0,1], xij represents the original data, i the province and j, the indicator. This method is applied in calculating the Average Qualified Floor Area and Average Life Expectancy. II. Interpolation transformation The standardized data is computed by application of the suitable interpolation formula. This method is mainly applied in calculating Engle Coefficient for Rural Residents. III. Index transformation The standard value of each indicator is set, and then the observation value is compared with the standard value. The quotient of two values is used as the development level. This method is applied in calculating the rest of the indicators. 3.2 Identification of the weight for indicators Expert assessment method (EAM) Twenty experts in the area of NSCC were invited to assess the importance of each indicator to ascertain the weights. The results by assessment of experts are as follows: 7

18 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction Table 3-1 Results of Experts Assessment Theme Sub-theme Indicator Weight Percentage of Changes of Farmland 0.06 Resources and Total Investment in fixed Assets in Rural Area 0.17 Production Condition Power of Agricultural Machinery 0.08 Number of Agricultural Technicians per 10,000 people 0.08 Developing Agricultural Labor Productivity 0.16 Production Comprehensive Total Income per Capita in Rural Area 0.16 Productivity Gross Provincial Product per Capita 0.15 Development of Non-agricultural Employment Rate of Non-agricultural Sectors 0.15 Sectors Income and Per Capita Net Income of Rural Residents 0.11 Consumption Engle Coefficient for Rural Residents 0.13 Per Capita Qualified Housing Area for rural residents 0.10 Coverage of Rural Residents with Drinking Water from Life Condition 0.10 Improved Source Improving Percentage of Villages with Bus 0.06 Living Standards Health and Average Life Expectancy 0.11 Medicare Qualified Rate of Rural Basic Medical Condition 0.10 Fostering More Civil Behavior Improving Overall Cleanliness of Villages Exercising Democratic Management Coverage Rate of Social Insurance for Rural Residents 0.11 Social Welfare Coverage Rate of New Cooperative Medical Insurance for Rural Residents 0.11 IT application IT application 0.10 Entertainment Number of Entertainment Stations per 10,000 people 0.10 Percentage of Expenditure for Education and Entertainment 0.30 Education Education of Agricultural Labor 0.32 Community Harmony Harmony Indicator of Rural Community 0.29 Usage Rate of Clean Energy 0.19 Environmental Usage Rate of Standard Toilet 0.32 Condition Percentage of Harmlessly Processed Dejecta 0.26 Transportation Infrastructure Improved Road Rate 0.23 Publicity of Village Affairs Satisfaction for Publicity of Village Affairs 0.45 Decision Making Consummation of Village Autonomous Regime 0.35 of Village Affairs Election of Communism Party

19 Selection of assessment method Analytic hierarchy process (AHP) AHP was conducted according to the three levels of appraisal indicators for NSCC, i.e. the level of A is for total goal, B is for developing production, improving living standards, fostering a civilized social atmosphere, improving the overall cleanliness and exercising democratic management with the code of B1, B2, B3, B4, B5 respectively, C is for the 29 single indicators. The weight of each indicator was given (See Table 3-2). Table 3-2 Weights of Indicator framework for NSCC Criterion B 1 B 2 B 3 B 4 B 5 Weights of Level Indicators to the Upper Level C C C C C C C C C C C C C C C C C C C C C C C C C C C C C

20 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction Identification of the weight for indicators According to the results by application of AHP and EAM, the average value of two results is seen as the final weight for each indicator with comprehensive consideration given of the importance of each indicator. Table 3-3 General Results Theme Sub-theme Indicator Percentage of Changes of Farmland 0.05 Resources and Production Total Investment in Fixed a ssets in Rural Area 0.16 Condition (0.35) Power of Agricultural Machinery 0.07 Developing Number of Agricultural Technicians per 10,000 people 0.07 Production Agricultural Labor Productivity 0.15 (0.36) Comprehensive Productivity Total Income per Capita in Rural Area 0.16 (0.45) Gross Provincial Product per Capita 0.14 Development of Non-farming Sectors (0.20) Employment Rate of Non-farming Sectors 0.20 Income and Consumption Per Capita Net Income of Rural Residents 0.19 (0.33) Engle Coefficient for Rural Residents (0.14) Average Qualified Floor Area 0.08 Life Condition Coverage of Rural Residents with Drinking Water from (0.21) Improved Source 0.08 Improving Percentage of Villages with Bus 0.05 Living Health and Medicare Average Life Expectancy 0.10 standards (0.18) Qualified Rate of Rural Basic Medical Condition 0.08 (0.27) Social Insurance Coverage Rate for Rural Residents 0.10 Social Welfare Coverage Rate of New Cooperative Medical Insurance (0.20) for Rural Residents 0.10 IT application (0.08) IT application 0.08 Number of Entertainment Stations per 10,000 people 0.11 Fostering Entertainment Percentage of Expenditure fo r Education and More Civil (0.41) Entertainment 0.30 Behavior Education (0.29) Education of Agricultural Labor 0.29 (0.13) Community Harmony (0.30) Harmony Indicator of Rural Community 0.30 Improving the Overall Cleanliness of Villages (0.12) Usage Rate of Clean Energy 0.14 Environmental Condition Usage Rate of Standard Toilet 0.41 (0.80) Percentage of Harmlessly Processed Dejecta 0.25 Transportation Infrastructure (0.20) Improved Road Rate

21 Application analysis on indicators for NSCC 4. Application analysis on indicators for NSCC 4.1 Evaluation on NSCC development in five themes Developing production Regarding the indicators for developing production, the value of evaluation is 49.69% at national average level. Among different provinces, Jiangsu topped out with 84.37% and Yunnan was the lowest with 24.08% (Figure 4-1). Figure 4-1 Development level in developing production (2005) 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% Jiangsu Zhejiang Beijing Tianjin Shanghai Shandong Guangdong Average Liaoning Heibei Fujian Jilin Henan Heilongjia Neimenggu Jiangxi Hubei Hunan Xinjiang Anhui Shanxi Sichuan Ningxia Hainan Chongqing Qinghai Guangxi Xizang Shaanxi Guizhou Gansu Yunnan Improving living standards Regarding the indicators for improving living standards, the value of evaluation is 67.53% at national average level. Among different provinces, Shanghai is the highest with 99.12% while Tibet is lowest with 25.16% (Figure 4-2). 11

22 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction Figure 4-2 Development level in improving living standards (2005) 100% 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% Average Shanghai Beijing Zhejiang Tianjin Jiangsu Liaoning Shandong Guangdong Fujian Henan Heibei Anhui Hubei Jilin Ningxia Shanxi Hunan Heilongjiang Shaanxi Jiangxi Guangxi Chongqing Sichuan Neimenggu Gansu Hainan Qinghai Xinjiang Yunnan Guizhou Xizang Fostering a civilized social atmosphere Regarding the indicators for fostering a civilized social atmosphere, the value of evaluation is 89.80% at national average level. Among different provinces, Beijing is the highest with 98.48% while Tibet is lowest with 50.97% (Figure 4-3). Figure 4-3 Development level in fostering more civil behavior (2005) 100% 95% 90% 85% 80% 75% 70% 65% 60% 55% 50% Average Beijing Jiangsu Shanghai Liaoning Shandong Shanxi Zhejiang Shaanxi Neimenggu Gansu Chongqing Jiangxi Jilin Tianjin Heibei Fujian Anhui Sichuan Heilongjiang Hainan Hunan Henan Guangxi Hubei Yunnan Guangdong Guizhou Ningxia Xinjiang Qinghai Xizang Improving the overall cleanliness of villages As for the indicators for improving the overall cleanliness of villages, the value of evaluation is 64.87% at national average level. Among different provinces, Zhejiang is the highest with 94.88% while Tibet is lowest with 26.62% (Figure 4-4). 12

23 Application analysis on indicators for NSCC Figure 4-4 Development level in improving the overall cleanliness of villages (2005) 100% 90% 80% 70% 60% 50% 40% 30% 20% Zhejiang Beijing Shanghai Tianjin Shandong Jiangxi Qinghai Fujian Hubei Guangxi Yunnan Jiangsu Guangdong Average Henan Anhui Heibei Liaoning Shanxi Hunan Gansu Hainan Jilin Heilongjia Chongqing Shaanxi Ningxia Xinjiang Guizhou Sichuan Neimenggu Xizang Exercising democratic management In respect of the indicators for exercising democratic management, the value of evaluation is 85.93% at national average level. Among different provinces, Beijing and Shanghai both are the highest with 97.84% while Tibet is lowest with 67.62% (Figure 4-5). Figure 4-5 Development level in exercising democratic management (2005) 100% 95% 90% 85% 80% 75% 70% 65% 60% Beijing Shanghai Jiangsu Zhejiang Tianjin Shandong Guangdong Hainan Fujian Heibei Jilin Anhui Shanxi Chongqing Heilongjiang Liaoning Xinjiang Sichuan Hubei Henan Hunan Neimenggu Jiangxi Ningxia Gansu Shaanxi Yunnan Average Guangxi Guizhou Qinghai Xizang Conclusions In terms of evaluation results, the development level of developing production and improving living standards was lower compared with other aspects, with 49.69% and 67.53% respectively. And the gaps among regions were larger. As regards the indicators for improving 13

24 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction living standards, Shanghai ranked first with a difference of 73.96% from the last, Tibet. It indicated that the objectives of developing production and improving living standards were not all being met. Although the development level of improving the overall cleanliness of villages was higher, with a national average of 64.87%, the objective for it was not also reached. And the development level varied greatly in regions. Zhejiang ranked first with a difference of 68.27% from the last placed Tibet. Moreover, the development level in fostering a civilized social atmosphere and exercising democratic management was higher with 89.80% and 85.93%, respectively. And the gaps among regions in this case were small. 4.2 Evaluation on NSCC development at national and provincial level The overall development level of NSCC was 65.89% at national level, ranging across various indicators. Regarding most of the indicators for developing production, improving living standards and improving the overall cleanliness of villages, the development level was rather low. Table 4-1 Development level of NSCC in 2005 Developing production Indicators Unit Criterion Actual Level Development Level (%) Percentage of Changes of Fa rmland % >-0.1% -0.30% Number of Agricultural Technicians per 10,000 people person > Power of Agricultural Machinery KW/hectare > Total Investment in Fixed Assets in Rural Area 100million Yuan > Agricultural Labor Productivity ton/person > Total Income per Capita in Rural Area Yuan/person >50,000 23, Employment Rate of Non-agricult ural Sectors % >60% 40.5% Gross Provincial Product per Cap ita Yuan/person >25,000 14, Improving living standards Per Capita Net Income of Rural Residents Yuan/person >8,000 3, Engle Coefficient for Rural Residents < Average Qualified Housing Area for rural residents m 2 /person > Coverage of Rural Residents with Drinking Water from Improved Source % >100% 92.0% Percentage of Villages with Bus % >98% 96.5% Average Life Expectancy year > Qualified Rate of Rural Basic Medical Condition medical beds/person > (continue on next page)

25 Application analysis on indicators for NSCC (Table 4-1 continued) Coverage Rate of Social Insu rance for Rural % >30% Residents Coverage Rate of Ne w Cooperative Medical Insurance for Rural Residents % >95% IT application Fostering a civilized social atmosphere Number of Entertainment Stations per 10,000 people number > Percentage of Expenditure for Education and Entertainment % >13.01% 11.6% Education of Agricultural Labor year > Harmony Indicator of Rural Community % >98% 80.5% Improving the overall cleanliness of villages Usage Rate of Clean Energy % >60% 61.1% Usage Rate of Standard Toilet % >88% 54.5% Percentage of Harmlessly Proces sed Dejecta % >97.07% 57.1% Improved Road Rate % >90% 48.5% Exercising democratic management Satisfaction for Publicity of Vi llage Affairs % >95% 78.9% 83.1 Consummation of Village Autonom ous Regime % >95% 82.8% 87.1 Election of Communist Party % >95% 85.8% 90.4 Overall development level Note: IT application is measured by three indicators. These indicators have different units so it has no specific value. In terms of the development situation in various regions in 2005 (See Table 4-2), Beijing ranked first in comprehensive evaluation of NSCC, while Tibet ranked last with a difference of 53.66% from Beijing. In general, the comprehensive index of NSC varied among provinces. And the development level in developing production and improving living standards varied greatly, as did fostering a civilized social atmosphere, improving the overall cleanliness of villages and exercising democratic management. 15

26 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction Table 4-2 Comprehensive Score of NSCC in 2005 (%) Province Developing Production Improving Living Standards Fostering A Civilized Social Atmosphere Improving the Overall Cleanliness of Villages Exercising Democratic Management Score Rank Average Beijing Shanghai Zhejiang Tianjin Jiangsu Shandong Guangdong Liaoning Fujian Hebei Henan Jilin Hubei Anhui Jiangxi Shanxi Heilongjiang Hunan Inner Mongolia Ningxia Chongqing Sichuan Guangxi Hainan Shaanxi Xinjiang Qinghai Gansu Yunnan Guizhou Xizang

27 Application analysis on indicators for NSCC Figure 4-6 Development level of NSCC in Different Provinces (2005) 100% 80% 60% Average 40% 20% Beijing Shanghai Zhejiang Jiangsu Tianjin Shandong Guangdo Liaoning Fujian Heibei Henan Hubei Jilin Jiangxi Shanxi Anhui Heilongji Hunan Neimeng Hainan Sichuan Guangxi Chongqin Ningxia Xinjiang Shaanxi Qinghai Gansu Yunnan Guizhou Xizang 4.3 Evaluation on NSCC development in typical area In the light of the partition of eastern, central and western regions based on China s economic development and geographic factors, the development level of each region was achieved on the basis of the provincial evaluation results, with farming land area of individual provinces as the weights (See Table 4-3). Table 4-3 Overall development level of NSCC in typical area in 2005 Indicator Development level (%) Average Eastern Central Western Developing producti on Percentage of Changes of Farmland Number of Agricultural Technicians per 10,000 people Power of Agricultural Machinery Total Investment in Fixed Assets in Rural Area Agricultural Labor Productivity Total Income in Rural Area per Capita Employment Rate of Non-farming Sectors Gross Provincial Product per Capita Improving living standards Per Capita Net Income of Ru ral Residents Engle Coefficient for Rural Residents Average Qualified Housing Area for Rural Residents Coverage of Rural Residents with Drinking Water from Improved Source Percentage of Villages with Bus (continue on next page) 17

28 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction (Table 4-3 continued) Average Life Expectancy Qualified Rate of Rural Basic Medical Condition Coverage Rate of Social Insurance for Rural Residents Coverage Rate of New Cooperative Medical Insurance for Rural Residents IT application Fostering a civilized social atmosphere Number of Entertainment Stations per 10,000 people Percentage of Expenditure for Education and Entertainment Education of Agricultura l Labor Harmony Indicator of Rural Community Improving the overall cleanliness of villages Usage Rate of Clean Energy Usage Rate of Standard Toilet Percentage of Harmlessly Processed Dejecta Improved Road Rate Exercising democratic management Satisfaction for Publicity of Village Affairs Consummation of Village Autonomous Regime Election of Communist Party Overall development level In terms of NSCC development in eastern, central and western regions, the development level was 70.9%, 57.3% and 49.3% respectively. The development level of the eastern region was obviously much higher than that in central and western regions, which indicated that the foundation of NSCC in the eastern region was better. Because the economic development level of the eastern region which has many coastal developed provinces ranked top, the development of the rural economy was effectively driven by farmers' participation and sharing in economic growth. It benefited from its geographic advantage, historical foundation and national favored policies. In contrast, the development level of NSCC was lower in the central and western regions, which were also the underdeveloped or less developed regions with a large proportion of farmers, populated with the highest level of rural poor. Due to the weaker economic foundation, the development process of NSCC was greatly affected. Regarding to the evaluation results for each indicator, the development level in developing production and improving living standards greatly varied among three regions. The development level for developing production in the eastern, central and western regions was 67.92%, 44.51% and 35.42%, respectively. The difference between eastern and western regions was 32.50%. Whereas, the development level for other indicators was similar. This indicates that the emphasis of reducing the gaps between eastern and western regions to entirely reach NSC standards was promoting production and improving living standards. 18

29 Arrangement of the indicators at village level and its application 5. Arrangement of the indicators at village level and its application 5.1 Appraisal indicator system at village level On the basis of the appraisal indicator system at national and regional levels, the indicator for farmer s opinions on NSCC was defined, specifically aiming at the practical situation of NSCC at village level. And with combination of survey results, the weight for each indicator was identified (See Table 5-1). Table 5-1 Indicator framework for Evaluating Villages and the Weights Theme Indicator Weight Agricultural Labor Productivity 0.30 Percentage of trainees 0.10 Developing Production (0.36) Income of Village 0.20 Percentage of Non-farming Sectors 0.25 Percentage of Household with Financial Difficulties 0.15 Per Capita Net Income of Rural Residents 0.22 Percentage of Households with Bricks and Cement 0.10 Coverage Rate of Life Insurance for Rural Residents 0.15 Improving Living Standards (0.27) Coverage Rate of Medical Insurance for Rural 0.15 Residents Usage Rate of Telephones 0.12 Usage Rate of Tap Water (Well Water) 0.08 Percentage of Households satisfied with Life 0.18 Education (above junior middle school) 0.29 Fostering A Civilized Social Percentage of Traveling Outside (Tourists) 0.16 Atmosphere (0.13) Satisfaction about Social Security 0.30 Ownership of Entertainment Venue 0.25 Usage Rate of Clean Energy 0.24 Improving the Overall Cleanliness of Improved Road Rate 0.40 Villages (0.12) Percentage of Harmlessly Processed Rubbish 0.36 Participation Rate of Village Leaders 0.28 Exercising Democratic Management Satisfaction for Publicity of Village Affairs 0.40 (0.12) Participation Rate of Village Representatives

30 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction 5.2 Assessment on NSCC development at Village Level In terms of the evaluation results for the surveyed villages in Shandong, Chongqing, Liaoning, Shanxi, Inner Mongolia and Jiangsu, the development level for developing production and improving living standards were similar to the level of economic development in these provinces. But the development level for fostering a civilized social atmosphere, improving the overall cleanliness of villages and exercising democratic management greatly differed from the provincial development level projected above. Particularly in exercising democratic management, the development level of five provinces was rather low, except for Jiangsu, It indicated that the opinion and understanding of farmers on exercising democratic management maybe different from the provincial point of view. Table 5-2 Development Level of NSCC for Various Villages (%) Village Improving Improving Fostering A Exercising Developing the Overall Comprehensive Living Civilized Social Democratic Production Cleanliness Score Standards Atmosphere Management of Villages NM NM NM NM CQ CQ CQ CQ CQ LN LN LN LN SX SX SX SX JS JS JS JS SD SD SD SD

31 Arrangement of the indicators at village level and its application Note: NM1 Shaogen Village, A Qi (County) NM2 Chagantaohai Village, Zuo Qi (County) NM3 Honguang Village, Zuo Qi (County) CQ1 Shanggu Village, Yinglong Town, Nan an District CQ2 Taoyuan Village, Xiannvshan Town, Wulong County CQ3 Longbaotang Village, Xiannvshan Town, Wulong County CQ4 Nanmugou Village, Qingsheng Town, Rongchang County CQ5 Sancengyan Village, Qingsheng Town, Rongchang County LN1 Sipuzi Village, Sipuzi Town, Zhangwu County LN2 Lengjia Village, Sipuzi Town, Zhangwu County LN3 Liumei Village, Baoli Town, Changtu County, Tieling City LN4 Yingtao Village, Baoli Town, Changtu County, Tieling City SX1 Dacunwang Village, Qu an Town, Sanyuan County, Xuanyang City SX2 Jingzhong Village, Dacheng Town, Sanyuan County, Xuanyang City SX3 Wanwan Village, Dihua Town, Danfeng County, Shangluo City SX4 Duanwan Village, Wuguan Town, Danfeng County, Shangluo City JS1 Qingshui Village, Yangchenghu Town JS2 Shangbing Village, Special Economic Area JS3 Zhujing Village, Yuanhe Town JS4 Lingfeng Village, Beiqiao Town SD1 Ma Village, Hetaoyuan Town, Juye County SD2 Wangsuolou Village, Yangshan Town, Jinxiang County SD3 Gaomiao Village, Qilin Town, Juye County SD4 Yangguantun Village, Qilin Town, Juye County 21

32 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction Table 5-3 Order for Development Level of NSCC at Village Level Fostering A Improving Improving Exercising Rank and Developing Civilized the Overall Comprehensive Living Democratic Village Production Social Cleanliness Score Standards Management Atmosphere of Villages 1 JS JS JS JS LN LN LN SX CQ LN SD NM SD SD NM SX SX SX NM CQ CQ SD NM CQ CQ

33 Conclusions 6. Conclusions 6.1 Developing production: great gaps Great gaps in regional economic development In viewing the estimate of relevant evaluation targets, the national mean per capita total production value in 2005 was 14,002 RMB yuan, with the maximum of 51,486 RMB yuan in Shanghai and the minimum of 5,306 RMB yuan, and the gap was very significant. The gap of regional economic development levels among the eastern, central and western regions is becoming greater and greater. The realization degree of the total regional production value in the eastern, central and western regions was 84.3%, 45.7% and 39.2%, respectively in In viewing this target, the eastern region had basically realized the goal of establishing a new socialist countryside, and there was a great gap in the central and western regions in realizing a new socialist countryside Low overall agricultural input level In viewing the relevant evaluation targets, the overall agricultural production input level was fairly low. At present, the quantities of farmland resources have continuously declined with greater restriction of natural resources. The level of agricultural commodity market development is closely related to the regional economic development level. There is a significant gap among farmers in how convenient it is to purchase agricultural commodities. The investigation showed that the price of agricultural commodities was on the high side, but that rural households had a fairly high satisfaction degree in the quality of agricultural commodities. Regarding the agricultural production fund, it was found that the channel for incoming funds was not effective and money was needed. Agricultural labor is aging rapidly and shows a low education levels. In viewing agricultural sci-tech input, the national mean level of the number of agricultural sci-tech staff per ten thousand farmers and the total agricultural machinery power were 1.01 people and 5.26 kw/h respectively, with a realization degree of 33.7% and 52.6%. Notably there is a great gap if compared with the agricultural sci-tech levels of the world average and developed countries Farmers' expectations The survey showed that farmers were mainly expecting to gain funding support, sci-tech services, information services, agricultural insurance services, etc. in developing agricultural 23

34 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction production. Meanwhile, exploration of marketing channels is also an important link in developing agricultural production. The rural households hope the Government or specialized organizations will take up the job of unified organized marketing so as to protect agricultural product marketing prices and farmer's interests. 6.2 Comfortable life: different levels Great gap in farmers income and great difficulty in increasing farmers income Due to the influence of various factors, farmers in different regions had a significant gap in income, and in fact there are various kinds of obstacles preventing farmers from increasing their income. In viewing this issue by regions, the per capita net income of farmers in the central and west regions was far lower than farmers in the eastern region, and the per capita income of the farmers in the central and western regions was only 59.12% and 45.98% of that in the eastern region. When viewing the situation in different regions, in 2005, the maximum farmer s income per capita is found in Shanghai, reaching 8, RMB yuan per farmer, while the minimum was Guizhou, only 1, RMB yuan per farmer. The gap in income continues to grow making it difficult to increase the income of farmers Low rural medical service level, compounded by the difficulty of farmers to see the doctor and high cost of medical care In the regions under the survey, the eastern region had the highest target-reaching rate in basic medical conditions, exceeding the national average level, 1.16, and 0.27 points higher than the central region and 0.32 points higher than the western region. In the number of clinics in each village, the eastern region had the maximum, the central region was second and the western region had the minimum. In the percentage of farmers participating in a new-type of cooperative medical service, the eastern region had reached 54.58%, while the central region 29.18% and the western region 25.97%. The result of the survey showed that in the economic developed regions such as Jiangsu, Shanghai, Zhejiang, etc. the farmer s income was not only fairly high, but also the government had fairly strong economic strength, with big coffers and a high guarantee level, which had even more significant function in alleviating the farmers medical burden. However, in the economically underdeveloped and undeveloped regions, farmers had a low-income level and the local government had low financial capabilities with even poorer medical service Fairly backward rural infrastructure The survey result showed that the infrastructure demand of the majority of rural areas is far from satisfactory. The village road systems varied greatly, with problems of lack of drinking water also prominent In viewing the situation of the regions being surveyed, the average length of village road was 9.97 km, of which, 4.69 km was hardening surface road. Seventy-seven percent of the villages had safe drinking water, 41% of villages had difficulties in drinking water 24

35 Conclusions supply, and 55% of villages had centralized water supply pipelines. And among these villages, the proportion of tap water users was 68%. There was a significant gap between the eastern region and the central region and western region. For example, the length of hardening road in Jiangsu Province was over 8 km while that in Shaanxi Province was less than 1 km. The drinking water situation is particularly significant. The drinking water in Jiangsu rural area was basically safe, while the drinking water situation in Qinghai, Sichuan and Gansu provinces was not always safe Rural social public service quality needs to be improved Viewing this issue from the survey result, at present, the coverage of social insurance such as rural pension insurance was very low, much lower than the coverage of the new-type of cooperative medicine. This has fully demonstrated that social insurance has not penetrated the rural areas extensively. In addition, in the evaluation of the level of rural IT application, the popularization of rural TV and telephones has reached a fairly high level, but the popularization of PCs is very low, lower than that of TVs and telephones. This has not only demonstrated the fairly low comprehensive quality of farmers in China, but also shows that infrastructure hardware has not reached the target. These rural social public services, which related to the improvement of farmers' quality and the sustainable development of the rural areas, are strategic innovation focusing on helping vulnerable groups and reducing rural poverty. Given the low quality of public services in rural areas, the room for improvement is fairly large. 6.3 Fostering a civilized social atmosphere: heavy responsibility Weak rural public culture and poor cultural facilities In viewing the evaluation of rural culture center target per ten thousand people, the national average level is 0.73, and the eastern region is 1, which is fairly higher. Most of the villages have not undertaken public cultural and recreation activities for years and most of their cultural facilities are rather backward. Villages equipped with PC facilities and libraries are very few. The cultural and welfare facilities in the central and western regions are particularly weak, which is very unfavorable for the rural civilization construction in the rural areas of China in the future Great gap of educational degree of rural labor in different regions In 2005, the education period of children in rural China was 8.14 years, of which, the eastern region had reached 8.3 years, while those of the central and western regions were 8.0 and 7.1, respectively. These figures are a significant improvement compared with that before the reform and opening to outside world. However, there is still a significant gap between different regions: the highest is Beijing reaching 9.06 years and the lowest is Tibet only 4.02 years. Therefore, in the future, we should not only pay attention to 25

36 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction the improvement of the comprehensive educational level of the Chinese farmer, but also continuously narrow the gap between different regions, so as to realize a balanced development Significantly high harmony index of rural community in different regions The result of the evaluation showed that in 2005 the average harmony index of the rural areas in China was 80.52%, with 86.4%, 76.1% and 78.1% in the eastern, central and western regions, respectively. The realization degree of the overall target was fairly high. This shows that through years of development, the traditional idea of the Chinese farmer has changed greatly, and the farmer s acceptance of various modern ideas has general improved. In addition, cadre-mass relations, neighborhood relations, etc. have already been effectively resolved. 6.4 The overall cleanliness of villages: still much to be done Heavy responsibility in the overall cleanliness of villages At present, the Chinese rural environment reform is still restricted to water system reform, toilet reform and surfacing village roads, while refuse and waste water treatment are only carried out in individual provinces in the eastern region. However, viewing the nation as a whole, the level of water system reform, toilet reform and road reform is fairly low and it has a long way to go if we want to reach the objective of making our villages more presentable in the construction of a new socialist countryside The overall cleanliness of villages is positive correlated with local economic development level The cleanest villages are found in the eastern region, second comes the central region and then the western region. The rural appearance and neatness is directly related to the local economic development, meaning the eastern region is the neatest, followed by the central region and western regions. In viewing the targets such as number of rural toilets, treatment of waste, use of clean energy and surfacing of rural roads, the rural environment is closely linked with the local economic development. In regions where the economic development is high, its environment treatment level is fairly high, and the relevant environment infrastructure is also fairly complete. The environment targets of the coast provinces in the eastern region are higher than those of the central region and the environment situation of western regions is the worst. There is a large gap between some individual targets and both the national average level and eastern region provinces. 26

37 Conclusions Villager environmental awareness is also an important factor influencing the overall cleanliness of villages Carelessly dumping garbage, carelessly piling up excrement and an untidy environment are common issues in rural areas. Most farmers keep clean homes but ignore environmental hygiene of public sites. Many villagers have not realized the important significance of straw resource utilization, but they use straw as their major fuel in daily life and this is particularly serious in northern China. Generally speaking, the villagers lack an awareness of environmental protection The State has ignored the overall cleanliness of villages with inadequate input For a long period of time, the local party commission and government and village organizations have ignored rural environmental protection work. In their overall work agenda, they pay attention to economic development and ignore rural environmental protection work. No one is taking charge of local rural environmental protection work and there is no scientific treatment program for rural refuse. In addition, there is inadequate funding by the state and collectives in rural environmental protection, causing a lack of necessary basic public hygiene facilities in many villages and townships, such as public toilets, refuse bins, refuse transportation lorries, refuse treatment plants, etc. 6.5 Democratic management: significant achievements Weak farmer democratic awareness with a big gap between regions The haphazard distribution of rural households and the weak economic links between villagers is causing the ignorance of village affairs by the farmers. Most villagers have given up on the right to know and the right to participation, let alone taking up their administration rights or supervision rights. In viewing the nation as a whole, the rate of village organizations that were recommended and elected through two stages and the rate of villages who governed their own appearance are over 80% respectively, but there is a significant difference among the various regions. These two targets are over 96% in Beijing and Shanghai, while they are only 75%, 72% and 73%, 69% in Yunnan and Guizhou, respectively. At the village level, the gap is even more significant The development of market economy has promoted the awakening of villager democratic awareness The satisfactory rate of open government at the village level in China is 79%, broken down into 85%, 80% and 72% in the eastern, central and western regions, respectively. While there is no significant gap between regions, the overall level is not high. At present, the market economy has made villager awareness more diversified and unbalanced, and is causing villagers with different backgrounds to participate more. The common farmers, township 27

38 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction enterprise employees, traders, individual owners, private owners, teachers, etc. have different levels of participation and a different attitude about participation towards village affairs, but the awareness of democratic principles in the villages is gradually awakening The participation degree of villagers in village collective affairs is closely related to the economic development level The national level of village autonomy is 83%, the eastern region is 91%, the central region is 82% and the western region is only 76%. This is adapted to the economic development level of each region. Fundamentally speaking, the development of the market economy is linked to the democratic participation level. 28

39 Issues and thoughts on NSCC 7. Issues and thoughts on NSCC 7.1 The main body of NSCC To construct a new socialist countryside is an important historical task under new situations based on the rural situation in China. It should be said that whether we look at the individual farmers or the individual governments, it is very difficult to complete this historical mission. The mission coincides with finding a solution to the farmer, agriculture and countryside issue. To construct a new socialist countryside needs the main body of a responsible -well balanced system, including a core of investors and those who can build.. In addition, it needs an organic connection, mutual influence, and mutually restrictive relationship among various groups. In the system of construction of a new socialist countryside, the government should be the main investor, and the farmers should be the main constructors. A thorough solution of the issue of farmer, agriculture and countryside will involve every aspect of agricultural production, farmers daily lives and rural development, and each aspect is composed of a series of concrete construction behaviors. Governments at all levels cannot be either policy formulators or policy implementers. The core of this construction must be taken care of by the farmers. In addition, irrespective of whether it s production construction, living improvements or rural comprehensive development, it all needs the input of solid human resources, material resources and financial resources. Any aspect of construction activity needs solid investment. The governments at all levels should and must become the main investors in agriculture and rural affairs development. Simply stated, the construction of a new socialist countryside in China needs an organized core team, of which, the government is the main investor (under certain conditions the government has the responsibility), and the farmers should drive the construction element (they should be responsible and obligated). In addition, it needs an independent institution as the main supervisory body (urgent need). Working as a team towards the same goal, these elements will promote the smooth progress of this historical task. 7.2 Realization schedule of NSCC In recent years, the rural economy in China has been rapidly developed. The steady development of agriculture, the continuous improvement of rural infrastructure and surrounding environment, the continuous improvement of farmers standard of living, the development of rural democratic management, and the significant achievement of transparent village affairs have laid a solid foundation for promoting the pace of constructing a new socialist countryside. However, constructing a new socialist countryside is a new project. The population in the countryside is huge and farmland is sharply decreasing. It is very difficult to complete this 29

40 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction Conclusions construction under the current situation of a traditional agricultural social environment with fairly backward infrastructure. According to target estimations, construction of the new socialist countryside in China has a very long way to go, especially with the challenges faced in the central and western regions. This has fully demonstrated that construction of the new socialist countryside in China needs is a long term reform project that needs both a gradual and innovated approach. 7.3 Bottleneck of NSCC Through 30 years of reform and opening to the outside world, China has always possessed the basic material resources needed to build a new socialist countryside. In 2005, China had reached the goals of million tons of steel, 2.19 billion tons of coal, 1,064 billion tons of cement. The building materials needed were ranked the biggest in the world. As the major means of production, the total output of chemical fertilizer ranked first in the world. This all proves that China can completely meet the demand for basic production and construction. Meanwhile, agricultural productivity has been continuously increased. During the period 1980~2005, grain produced by each agricultural laborer increased from 1089kg to 1,598kg, cotton from 9.3kg to 18.9kg, and oil-seed from 26.5kg to 101.6kg. The improvement of agricultural productivity has provided large quantities of surplus rural labor, showing that China has the human resources to build a new socialist countryside. According to sector divisions, the total number of professional technicians from the state-owned agriculture, forestry, and animal husbandry and fishery institutions is million, which can basically meet the demand for constructing a new socialist countryside.therefore, the main components of construction are basically in position. Due to the discussion on the above material resource and human resource, it can be found that the bottleneck of NSCC in China is mainly financial resources and fund investment. 7.4 Primary objective of NSCC In the construction of a new socialist countryside, production development, living a better life, rural civilization, neat village appearance, and democratic management are all objectives. It should be said that living a better life, rural civilization, neat village appearance, and democratic management are an external direct demonstration of NSCC; and the fundamental things in the realization of these objectives are to establish a new socialist countryside on certain productivity development levels, and the goal is for the output of rural productivity to reach a specified phase. During the course of constructing the new socialist countryside at present, there have appeared some deviations, which mean the task has deviated from rural development reality. For example, in some places people construct buildings in a big way, spending huge amounts of funds in village appearance reform by ignoring local economic development. Phenomena such as villages being built outside of villages, empty villages and high buildings are common.. In the total requirements and objectives of constructing a new socialist countryside, production development is top 30

41 Issues and thoughts on NSCC priority. Without the development of rural productivity, there is no stable farmer s income and the improvement of farmer s living standards. In such a way, the rural areas will have no reserve strength for development, let alone the realization of the political, cultural and social objective. Therefore, the focus needs to be on steadily improving agricultural productivity. This will require enhancing agricultural infrastructure reform, strengthening improvement of agricultural technology, and developing modern agriculture procedures. 7.5 Regional difference of NSCC There have existed great gaps in the new socialist countryside construction in the eastern, central and western regions. This is a very normal phenomenon during the course construction of a new socialist countryside in China in the current phase. In terms of system arrangement, system structure and system change, the rural areas in the eastern, central and western regions have shown enormous differences, which have produced completely different economic achievements. In 2005, the proportion of GDP in China s eastern region, central region and western region were 62%, 20% and 18%, respectively. In other words, the eastern region, central region and western region have different starting points in economic development in constructing a new socialist countryside. Meanwhile, in viewing the indicators of rural transportation, infrastructure and IT application, the basic conditions in eastern, central and western regions are fairly different. Due to the rural geographic environment, economic situation, living habits, development levels in different regions are also vary greatly. This means that the mode and scale of constructing a new socialist countryside will be different. In other words, the construction of a new socialist countryside in eastern, central and western regions must be based on the real situation of each region. It is essential to adopt different development paths, suited to local conditions, adapting to village conditions so as to implement it gradually and make steady progress. 7.6 Pilot villages of NSCC At present, during the course of construction of the new socialist countryside, each region will undertake a pilot experiment, which will then be extended to the whole region. In general, each region has gained certain achievements in pilot experiment selection and construction is underway. However, there have appeared some problems. In the selection and construction of pilot experiments in some individual places, people did not focus on undertaking pilot experiments to learn and gain experience, but rather selected rich villages so as to gain rapid investment and show instant achievements. In so doing, the poorer villages are left behind. The majority holds the view that if we choose a poor village as the pilot village, it has a low starting point, numerous problems and will be slow to progress, therefore making it difficult to achieve results. This kind of thought will eventually produce an unfavorable effect in constructing a new socialist countryside. On one hand, it will make the selection of rich villages ineffective in that it will provide little to gain from. On the other hand, some local cadres use the new socialist countryside construction as the means to produce 31

42 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction political achievements, seek new and rapid political achievements, or even allocate the construction funds to a focal point instead of the entire area, In so doing, it will cause unfair distribution of material resources and financial resources and further enlarge the wealth gap between the pilot villages and other richer villages. Under a situation of limited financial resources, countryside reform will be unfavorable. 32

43 Countermeasures and suggestions 8. Countermeasures and suggestions 8.1 Countermeasures and suggestions on central government in promoting NSCC NSCC needs common efforts from the whole society. Viewing it from the national level, the responsibility of the central government is to approve and formulate instructive regulations and policies that have overall significance, and provide strong guarantees for constructing a new socialist countryside. The scope of these regulations and policies should include three aspects: system restriction, guidance in spreading core elements and social coordination Formulate and perfect regulations and policies on NSCC The formulated regulations on constructing a new socialist countryside mainly include industrial development, planning, population migration and household registration management, land distribution, raising spiritual awareness, rural social insurance, new administration system, etc. Taking cognizance of the overall requirements of constructing a new socialist countryside, it is essential to form a policy system that is adapted to the regulations that meet the demand of this construction to promote industrial development, social development, building infrastructure, democracy, better living environment, etc., and gradually form a policy environment favorable to new socialist countryside development Strengthen pilot experiments and guidance on national NSCC In the selection of a pilot experiment of constructing a new socialist countryside it is essential to make a thorough investigation and scientific selection of pilot experiments at different levels according to the imbalance in regional characteristics and rural production development level. In rural pilot locations in economic developed regions, it is essential to focus on promoting modern agriculture, and develop rural new-type industries according to local characteristics and regional superiority. In rural pilot locations in medium developed regions, it is essential to focus on agricultural infrastructure construction, improve production and living conditions, and push new socialist countryside construction to an even higher level on the bases of steady improving living standards. In rural pilot locations in fairly poor regions, it is essential to determine the real cause of poverty, solve the most basic existing problems of the farmers and create active conditions for farmers to get rid of poverty Enlarge fund input on NSCC At present, the majority of rural areas has the cycled capacity of providing fund guarantees 33

44 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction for new socialist countryside development, and need the state to provide more funds. Fund guarantees can be realized through financial input, financial institution support and social fund utilization etc. State financial budget should establish special funds for new socialist countryside construction, support new countryside economic development in a big way, strengthen infrastructure, public service facilities, improve the living environment, guarantee farmers social welfare, improve education training, and support the development of various kinds of rural undertakings. Meanwhile, it is essential to encourage and guide financial institutions, and social funds to provide fund support for new socialist countryside industrial development, new technology application, infrastructure and social service facilities construction Establish a national information system and guiding various rural areas to develop special and high quality industries It is essential to organize and establish the national agricultural development information system and provide information guidance for rural areas to develop special and high quality industries, establish the national agricultural information coordination institution and coordination mechanism, and effectively integrate information from the State Statistical Bureau, the State Economic Information Center, the Ministry of Agriculture as well as agricultural information from each province. Entrust special institutions to construct the National Agricultural Information Network, and provide unified and the timely issue of various kind of agricultural information. Also important is to set up a special fund to support universities and research institutions of the relevant department, to trace, analyze and research foreign agricultural data and provide the timely results to the national agricultural information system. Set up the National Agricultural Information Paper and provide it to the broad masses of farmers in a preferential, rapid and convenient manner. 8.2 Countermeasures and suggestions on provincial or municipal government in promoting NSCC In order to implement the policies and regulations of the central government, the local governments at the county and prefecture levels should formulate corresponding measures based on local situations Unfold local pilot programs in NSCC and undertake guidance by setting up models We should find problems in a timely manner, adjust ideas, summarize experience through the pilot locations of constructing a new socialist countryside, and demonstrate and guide similar regions in this task through the effect of the successful pilot locations. It is essential to broadly propagate these typical experiences and practices through broadcasting, television, paper, periodical, network, and various kinds of media 34

45 Countermeasures and suggestions Formulate development program on NSCC for various regions It is essential to formulate a comprehensive development program for new socialist countryside construction based on the infrastructure, transportation, ecological environment and various kinds of resources and element conditions of various regions. On the basis of a thorough investigation and analysis, it is essential to put forward the basic idea for various regions in establishing a new socialist countryside, clarify the core tasks of constructing a new socialist countryside, put forward practical and feasible countermeasures and measures that can develop production, increase farmer income, improve the living environment, develop local culture and strengthen the development of construction, and use this as the guideline document for new socialist countryside construction Unfold comprehensive training on NSCC Set up a special training fund for new socialist countryside construction, and use it to undertake agricultural technology and training for grass-root rural cadres, technicians and the broad masses of farmers. Make full use of educational training institutions to institute training in social morality, professional morality, household harmony, and modern agricultural technology. Edify and influence farmer s ways of thinking and daily lifestyle, advocate a healthy, civilized and scientific lifestyle, and gradually train farmers to become a new-type farmer with not only modern knowledge and skill, but also a modern outlook Comprehensive planning and construct regional public service facilities Public service facilities not only includes service facilities for village service within the new construction of a new socialist countryside, but also needs service facilities that have largescale and regional sharing characters for education, medicine, culture and physical training. Therefore, it needs to organize special technicians from relevant departments of the cities and counties to undertake investigation and research. To counter the demand of urban and rural development in the future, it is essential to integrate planning arrangement and establish regional public service facilities, scientifically guide development practice and guarantee the demand of new socialist countryside production, living and study. 8.3 Countermeasures and suggestions on villages in promoting NSCC Rural areas are the focus of new socialist countryside construction, while the rural administration institutions are organizers and also the implementer of relevant laws, regulations and policies on new socialist countryside construction formulated by the central provincial, prefecture and county governments. The countermeasures and action of building a new socialist countryside taken by the administration institutions at the township level are directly reflected in the construction of a new socialist countryside. 35

46 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction Promote agriculture industrialization and comprehensively develop special high quality non-farming sectors Steadily develop grain and livestock production, actively promote agricultural restructuring, and guarantee the state grain security. According to the requirements of high-yield, quality, high-efficiency, ecology and security, it is essential to adjust and optimize agricultural structure, and strive to improve agricultural production conditions. Develop rural secondary and tertiary industries, comprehensively develop agricultural products and side-occupation product industry, strengthen rural commerce, trade and circulation construction, actively develop rural service industry, speed up the pace of developing tourism agriculture, comprehensively develop rural special economic cooperation organizations, and establish rural special associations, special markets, broker organization and farm owner associations and other nongovernment organizations Strengthen village and township planning and infrastructure construction Scientifically formulate village or township construction program. On the basis of the principle of clear objective, scientific planning, pilot first, summarize experience and gradual extension, formulate construction program, take measures suited to local conditions, stress characteristics, and strengthen planning administration. Orderly promotion of village and township construction, encourage rural building construction to be relatively concentrated, and promote village and township construction in different manners based on villages in urban suburbs, spreadout control villages and other newly built village. Have a firm grasp of demonstrating village construction. As for pilot villages in new socialist countryside construction, they should focus on formulating planning, policies, projects and funding and guarantee construction, so as to facilitate overall progress and coordinated development of other villages Strengthen ecological protection, beautify village appearance and optimize rural living environment Speed up rural road network construction, strengthen village road construction, realize the hardening targets of village road in an all-round way, grasp firmly group-level and household road construction, and reach the standard of all-weather road for rural households. Speed up the pace of rural water reform, implement rural safety drinking water project in urban suburbs and river side regions in a big way, realize centralized water supply through extending urban water supply channels. Villages in the township suburbs should be in the unified centralized water supply of the townships. In regions where distributed households are located and there is no water source, it is essential to adopt rain-collecting engineering to solve water supply problems. Speed up ecological garden construction, extend ecological micro-irrigation technique in a big way, improve 3-gas comprehensive utilization rate and strengthen night-soil gasification rate for rural human and livestock, and raising area. Speed up information network construction, explore the operation mechanism of the Integration of three networks of telecommunication, Internet and broadcast and television network, and speed up the progress of IT application in rural areas. 36

47 Countermeasures and suggestions Strengthen rural democracy and spiritual civilization construction Speed up rural democratic legal construction, further perfect villager autonomous mechanism under the leadership of the village Party Committee, perfect the system of village-level democratic election, democratic decision-making, democratic supervision, and democratic administration, realize grass-root democratic system, standardization and program, and actively implement and perfect open Party affairs, open village affairs. Strengthen education, improve farmer s ideological moral quality, unfold ideological moral education with loving the garden, discipline obey and changing prevailing habits and customs as its main content, and increase ideological moral level of the broad masses of farmers. Strengthen propaganda work, education and guidance, foster civilized village customs, pay attention to the collection of typical events of excellent village customs and broadly propagate them in papers, periodicals, television and other media, run selecting activities of excellent villagers and civilized villagers in a big way, and hold solemn commendations so as to carry forward civilized rural customs. It is an important historical task to promote rural reform development, construct a new socialist countryside, and victoriously realize the construction of moderately prosperous society in an all-round way during the course of modernization in China. It is the inevitable requirement of the new tasks under new situations and also a great engineering that will give happiness to thousands of farmers. Since the Fifth Plenary Session of the Sixteenth Central Committee of the Party, the Seventeenth Central Committee of the Party has put forward to the whole Party the magnificent objective of Balancing Urban and Rural Development, Advance the New Socialist Countryside Construction. Under the guidance of the spirit of the Seventeenth Central Committee of the Party, so long as we insist on the guidance of scientific outlook on development, exploitation and innovation, continuous exploration, and being good at finding problems and summarizing experience, the magnificent goal of advancing the new socialist countryside construction and building a moderately prosperous society in an all-round way will be certainly victoriously realized. 37

48 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction 38

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54 亚洲开发银行技术援助项目 TA4790 研究报告 44

55 亚洲开发银行技术援助项目 TA4790 研究报告 社会主义新农村建设评价指标体系 研究及应用 中国农业科学院农业信息研究所 二 OO 八年十二月 45

56 亚洲开发银行技术援助项目 TA4790 研究报告 46

57 摘要 摘 要 中国社会主义新农村建设是推动农村进步 促进社会和谐发展的重大战略决策, 是一项复杂的系统工程, 内容多 难度大 任务重, 需要全社会做长期艰苦的努力 因此, 在深入理解建设社会主义新农村内涵的基础上, 根据新农村建设的理论框架和动态属性, 构建一套完整的指标体系, 对于评价和衡量新农村建设发展进程, 找出存在问题和发展瓶颈, 提出措施和建议, 具有重要的意义 本项研究构建了包括生产发展子系统 生活宽裕子系统 乡风文明子系统 村容整洁和管理民主等五个子系统,29 项指标的监测指标体系 监测评价结果表明,2005 年全国新农村建设综合实现程度为 65.9%, 生产发展类 生活宽裕类 乡风文明类 村容整洁类 管理民主类指标的平均实现程度分别为 49.7% 67.5% 89.8% 64.9% 和 85.9% 生产发展 生活宽裕和村容整洁等多项指标的实现程度都比较低, 而乡风文明和村容整洁类指标实现程度相对较高 新农村建设的实现程度在各地区之间差异较大, 综合评价排名第一位的北京新农村建设综合评价指数, 与排名最末的西藏相差 53.7% 全国有 10 个省 ( 市 区 ) 实现程度高于全国平均水平, 其余 21 个省实现程度低于全国平均水平 其中, 生产发展和生活宽裕类指标差异较大, 乡风文明 村容整洁和管理民主类指标差异相对较小 从分区看, 东部地区实现程度为 76.3%, 明显高于中部的 62.0% 和西部的 52.7% 从各类指标来看, 三大区域之间生产发展类指标和生活宽裕类指标差异较大, 而乡风文明 村容整洁和管理民主类指标差异较小 以监测指标的应用为基础, 本研究选取山东 重庆 辽宁 陕西 江苏和内蒙古自治区进行指标应用和案例分析, 并根据典型调查数据, 构建了针对性更强的村级新农村建设指标 测算结果表明, 实现程度较高的是江苏省的两个村, 其次为辽宁的两个村, 其他样本村的发展相对落后 其中, 各村生在产发展和生活宽裕类指标的实现程度等方面与六省 ( 市 区 ) 的平均发展水平基本一致, 而乡风文明 村容整洁和管理民主类指标的实现程度与省级测算结果的差距较大 分析结果表明, 发展理念 管理体制 资源禀赋 经济发展 人口问题 政策约束等方面直接影响到中国新农村建设, 需要在国家 省市和乡村层面等多个层面推进新农村建设 47

58 亚洲开发银行技术援助项目 TA4790 研究报告 表序 表 1 新农村建设发展状况评价指标体系 52 表 2 专家评测法各指标权重 54 表 3 新农村建设发展状况评价指标权重 55 表 4 新农村建设发展状况评价指标权重 56 表 年全国新农村建设实现程度 62 表 年各地区新农村建设发展状况评价结果 (%) 63 表 年东中西部地区新农村建设实现程度 64 表 8 村级评价指标 67 表 9 调研村发展状况评价表 68 表 10 各调研村排序表 69 图序 图 年我国各地区生产发展类指标水平状况 59 图 年我国各地区生活宽裕类指标水平状况 60 图 年我国各地区乡风文明类指标水平状况 60 图 年我国各地区村容整洁类指标水平状况 61 图 年我国各地区管理民主类指标水平状况 61 图 年全国及各地区新农村建设发展状况 64 48

59 背景 一 背景 ( 一 ) 新农村建设的提出 中国在新时期新阶段提出新农村建设具有特殊的时代背景 首先, 中国粮食生产和农产品供给已具备较好的基础, 农业生产开始迈入现代农业的轨道, 但是收入和人口刚性双增长, 农产品供求将长期处于紧平衡状态 其次, 非农产业快速发展, 农民收入不断增加, 部分地区农村非农产业得到长足发展, 但是城乡居民收入和消费差距呈现扩大趋势 第三, 城镇化水平快速提高, 农村尤其是周边城镇的交通等基础设施大力改善, 但是农村公共事业发展滞后, 农村的生产生活条件落后于城市 第四, 村民自治不断完善, 农村基层民主政治建设不断推进, 但是农民的总体权益还没有得到应有的保障 第五, 城乡分割体制已有明显的松动, 城市和工业已积累了支持农村和反哺农业较雄厚的基础, 加强 三农 工作已在全社会形成了广泛共识 社会主义新农村反映了一定时期农村社会以经济发展为基础, 以社会全面进步为标志的社会状态 与传统农村和计划经济时代相比, 新农村的基本特点是新居住环境 新技术环境 新体制环境 新分工环境和新居民主体 新农村建设要求发展农村生产 全面深化农村改革 进行基础设施建设 发展农村公共事业 提高农民素质和千方百计增加农民收入 ( 二 ) 研究方法 文献方法 通过查阅相关文献, 掌握新农村建设的背景 内涵以及新农村建设的有关理论 国家有关政策 法规 规划和建设目标 ; 了解指标体系的构建方法和综合评价方法 专家法 有关专家参与指标的选取, 通过专家打分的方法, 确定指标权重 定量方法 研究中采用了计量经济模型和统计分析方法 49

60 亚洲开发银行技术援助项目 TA4790 研究报告 ( 三 ) 研究框架 50

61 新农村建设评价体系构建 二 新农村建设评价体系构建 ( 一 ) 建立评价指标体系的原则 遵循四个原则 : 综合性和针对性原则 ; 代表性和独立性原则 ; 可获取性和可操 作性原则 ; 可量化和可比性原则 ( 二 ) 指标体系的设计思路和框架 评价对象设计 由于各地发展水平和新农村建设主体对象的不同, 指标体系可分设为全国性和村级两个层次 评价内容设计 按照新农村建设发展目标 生产发展 生活宽裕 乡风文明 村容整洁 管理民主 等五方面设计 样本选取 选取 31 个省作为样本总体样本 ; 地域单元划分为东 中和西部 选取山东 重庆 辽宁 陕西 江苏和内蒙古自治区等 12 个县 ( 区 ) 25 个村 605 户农户作为典型调查的样本 指标体系 筛选出影响大 关联度强 5 大类共计 29 项指标 ( 如表 1 所示 ) 51

62 52 亚洲开发银行技术援助项目 TA4790 研究报告

63 评价方法的选择 三 评价方法的选择 ( 一 ) 评价指标无量纲化处理方法 为了得到各指标新农村建设的实现程度, 对各观测指标进行无量纲处理 具体计算方法有 : (1) 功效系数变换方法, 即首先确定评价指标的新农村建设实现值作为满意值 xij x x ( h), 某一低水平值为不允许值 x ( s) ( s), 变换公式 xij = x( h) x, x ( s) ij 为无量纲化后的数据, 且, x ij [0,1], x ij 为原始数据,i 代表第 i 个地区省份,j 代表第 j 个指标 用这一方法计算的指标有农村人均合格住房使用面积 农民平均预期寿命 (2) 插值法变换, 用适用的插值公式计算指标的标准化值, 用于恩格尔系数的标准化计算 (3) 指数化变换方法, 即将指标的新农村建设实现值作为标准值, 各个地区的观测值与标准值对比计算出指数作为实现程度, 除上述指标外, 其余指标均用此法 ( 二 ) 指标权重的确定方法 1 专家评测法 聘请新农村建设领域的 20 名专家对各个指标的重要程度进行评定, 给出权数 经过专家评测的结果如下表 : 53

64 亚洲开发银行技术援助项目 TA4790 研究报告

65 评价方法的选择 2 层次分析法 根据新农村建设发展状况评价指标体系的三个层次, 即第一层为新农村建设发 展状况的总目标 A, 第二层为生产发展 B1 生活宽裕 B2 乡风文明 B3 村容整洁 B4 和管理民主 B5 共五项指标, 第三层为 29 个单项评价指标 C, 进行层次分析, 得出新 农村建设发展状况各评价指标权重 3 B1 B2 B3 B4 B C C C C C C C C C C C C C C C C C C C C C C C C C C C C C

66 亚洲开发银行技术援助项目 TA4790 研究报告 3 指标权重确定法 根据层次分析法和专家评价法的评价结果, 综合考虑各指标的重要性, 取两种 评价方法的均值作为各评价指标的最终权重

67 评价方法的选择 ( 三 ) 综合评价模型 用加权总和合成法计算综合评价指数, 对各地区新农村建设实现程度进行评 y 价 即 : i = ωij xij j= 1 其中, 为综合评价指数, 是与评价指标相应的权重系 数, 为无量纲化后的数据, 且, 为原始数据,i 代表第 i 个地区省份,j 代表第 j 个指标 57

68 亚洲开发银行技术援助项目 TA4790 研究报告 58

69 新农村建设指标应用分析 四 新农村建设指标应用分析 ( 一 ) 分系统评价新农村建设发展水平 1 生产发展类指标 在生产发展类指标中, 全国平均实现程度为 49.69%, 其中得分最高的为江苏 省, 实现程度为 84.37%, 最低的为云南省, 实现程度为 24.08% 100% 80% % 40% 20% 0% 2 生活宽裕类指标 在生活宽裕类指标中, 全国平均实现程度为 67.53%, 其中得分最高的为上海市, 实现程度为 99.12%, 最低的为西藏, 实现程度为 25.16% 59

70 亚洲开发银行技术援助项目 TA4790 研究报告 % 80% 60% 40% 20% 0% 3 乡风文明类指标 在乡风文明类指标中, 全国平均实现程度为 89.80%, 其中得分最高的为北京 市, 实现程度为 98.46%, 最低的为西藏, 实现程度为 50.97% % 80% 60% 40% 20% 0% 4 村容整洁类指标 在村容整洁类指标中, 全国平均实现程度为 64.87%, 其中得分最高的为浙江 省, 实现程度为 94.88%, 最低的为西藏, 实现程度为 26.62% 60

71 新农村建设指标应用分析 % 80% 60% 40% 20% 0% 5 管理民主类指标 在管理民主类指标中, 全国平均实现程度为 85.93%, 其中得分最高的为北京市和上海市, 实现程度为 97.84%, 最低的为西藏, 实现程度为 67.62% % 80% 60% 40% 20% 0% 从五类评价指标的评价结果来看, 生产发展类指标和生活宽裕类指标的实现程度普遍偏低, 分别为 49.69% 和 67.53%, 并且各地区之间差异非常大, 在生活宽裕类指标中, 排名第一的上海与排名最后的西藏, 实现程度相差 73.96% 这说明目前距离生产发展和生活宽裕的目标实现还有很大差距 村容整洁类指标的实现程度虽然较生产发展和生活宽裕类指标略高, 全国平均为 64.87%, 但是距离该目标的实现也还有一定差距, 并且地区间差异也比较大, 排名第一的浙江与排名最后的西藏, 61

72 亚洲开发银行技术援助项目 TA4790 研究报告 实现程度相差 68.27% 而相对的乡风文明类指标和管理民主类指标的实现程度比较 高, 分别为 89.80% 和 85.93%, 地区之间差异也相对较小 ( 二 ) 全国及各地区新农村建设发展水平评价 全国新农村建设综合实现程度为 65.89%, 各指标之间的实现程度差异也比较 大 其中生产发展 生活宽裕和村容整洁类中多项指标的实现程度比较低 % % >-0.1% -0.30% > / > >1, / > / >50,000 23, % >60% 40.5% / >25,000 14, / >8,000 3, < / > % >100% 92.0% % >98% 96.5% > / > % >30% % >95% / > % >13.01% 11.6% > % >98% 80.5% % >60% 61.1% % >88% 54.5% % >97.07% 57.1% % >90% 48.5% % >95% 78.9% 83.1 % >95% 82.8% 87.1 % >95% 85.8% 注释 : 信息化程度指标由于是三项指标的加权平均, 而各指标的单位不统一, 因此没有具体实际值 62

73 新农村建设指标应用分析 从 2005 年各地区的发展情况来看 ( 见表 6), 新农村建设综合评价排名第一位的是北京, 排名最末的是西藏, 北京新农村建设综合评价指数和西藏相差 53.66% 总体来看, 新农村建设综合指数在省际之间存在一定差异, 并且生产发展和生活宽裕类指标差异较大, 乡风文明 村容整洁和管理民主类指标差异相对较小 %

74 亚洲开发银行技术援助项目 TA4790 研究报告 % 80% 60% 40% 20% 0% ( 三 ) 典型区域新农村建设发展水平评价 按照中国经济发展和地理方位等多种因素对东中西部地区的划分, 在各省评价 结果的基础上, 以各省农业用地面积比重为权重, 折算得出东中西部地区各指标的实现程度 ( 表 7) % ( 接下页 ) 64

75 新农村建设指标应用分析 ( 接上页 ) 从三大区域之间新农村建设的发展情况来看, 东中西部地区的综合实现程度分别为 76.26% 61.99% 和 52.67%, 东部地区实现程度明显高于中部和西部地区, 这说明我国的新农村建设在东部地区的基础好, 具有较高的发展水平 我国的东部地区多处在沿海经济发达省份, 地域 历史的原因和国家给予政策优惠等都促进了该地区经济发展水平居全国前列, 在此期间, 广大农村和农民也参与经济增长, 分享 65

76 亚洲开发银行技术援助项目 TA4790 研究报告 经济增长带来的成果, 经济的快速发展有效地带动了农村经济的发展 相对而言, 中西部地区新农村建设发展水平偏低, 这些地区也是我国经济欠发达地区和不发达地区, 农业人口比重较大, 并且集中了我国大量的农村贫困人口, 经济基础比较薄弱, 这些都影响到新农村建设的发展进程 从各类指标来看, 三大区域之间生产发展类指标和生活宽裕类指标彼此差异较大, 例如生产发展类指标中, 东中西部地区的实现程度分别为 67.92% 44.51% 和 35.42%, 东部地区和西部地区就相差了 32.50% 而乡风文明 村容整洁和管理民主类指标彼此差异相对较小, 这说明生产发展和生活宽裕是缩小东中西部差距 全面实现新农村的重点 66

77 新农村建设村级指标设置与评价 五 新农村建设村级指标设置与评价 ( 一 ) 村级评价指标体系 基于上述全国和各地区的评价指标体系, 针对村级新农村建设的实际情况, 专门设计了农民对新农村建设的意向类指标, 并进一步根据调研情况, 确定各指标的权重 ( 如表 8)

78 亚洲开发银行技术援助项目 TA4790 研究报告 ( 二 ) 村级新农村建设评价 从对内蒙 重庆 辽宁 陕西 山东 江苏六省 ( 市 区 ) 调研村新农村建设的综合评价来看, 实现程度较高的是江苏省, 其次为辽宁, 而内蒙古 重庆 陕西和山东的发展水平相对落后 各省内几个村的实现程度差异不明显, 例如江苏省所调查的 4 个村实现程度均在 80% 左右, 彼此之间差异非常小 从各类指标来看, 各村生产发展和生活宽裕类指标的实现程度与这几个省的发展水平基本接近, 而乡风文明 村容整洁和管理民主类指标的实现程度与省级测算差异非常大, 尤其是管理民主, 除江苏省实现程度较高外, 其余各省实现程度很低, 这说明了农民对管理民主的理解和看法与从省级角度的理解可能有所不同

79 新农村建设村级指标设置与评价

80 亚洲开发银行技术援助项目 TA4790 研究报告 70

81 主要结论 六 主要结论 ( 一 ) 生产发展 : 差距很大 1 各地区经济发展水平差异很大从相关评价指标的测算来看,2005 年全国平均人均生产总值为 14,002 元 / 人, 而最高的上海已达到 51,486 元 / 人, 最低的贵州仅为 5,306 元 / 人, 差距非常明显 中国东 中 西部各区域间经济发展水平差距也越来越大,2005 年东中西部地区人均地区生产总值的实现程度分别为 84.3% 45.7% 和 39.2%, 从这一指标来看, 东部地区已基本实现新农村, 而中西部地区距离新农村的实现标准还有很大差距 2 农业投入水平整体较低从有关评价指标来看, 农业生产投入水平整体较低 目前, 耕地资源数量不断下降, 自然资源约束越来越大 农资市场发育与区域经济发展水平密切相关, 农民购买农资方便程度在地区间存在明显差异 而且调查显示, 农资价格偏高, 但农户对农资质量满意度较高 在农业生产资金投入方面, 极度匮乏, 资金投入渠道不畅 农业劳动力投入表现为老龄化较严重, 文化程度偏低 从农业科技投入来看, 万人农业科技人员数和农用机械总动力指标的全国平均水平分别为 1.01 人和 5.26 千瓦 / 公顷, 实现程度分别为 33.7% 和 52.6%, 特别是和世界平均水平以及发达国家的农业科技水平相比差距很大 3 农民的期盼调查显示, 农民对发展生产主要期盼着获得资金支持 科技服务 信息服务 农业保险服务等 同时, 开拓销售渠道也是发展生产的重要一环 农户希望政府或者专业组织出面统一组织销售, 保护农产品销售的价格和农民的利益 71

82 亚洲开发银行技术援助项目 TA4790 研究报告 ( 二 ) 生活宽裕 : 参差不齐 1 农民收入差距悬殊, 农民增收难度大 由于多种原因的影响, 不同地区的农民收入存在显著差距, 农民增收在现实中 也面临诸多障碍 分区域来看, 中部和西部地区农民的人均纯收入都远低于东部地区, 分别是东部地区人均收入的 59.12% 和 45.98% 从各地区来看,2005 年农民人均收入最高的上海, 已达到 8, 元 / 人, 而最低的贵州仅为 1, 元 / 人 收入差距不断拉大, 导致农民增收的难度加大 2 农村医疗服务水平低, 农民看病难 看病贵问题依然突出 在所调查的地区中, 东部地区基本医疗条件达标率最高, 已经超过全国平均水平, 达到 1.16, 比中部高 0.27, 比西部高 0.32, 每村卫生室数三个地区东部最多, 中部次之, 西部最少 农民参与新型合作医疗东部地区达到 54.58%, 而中部地区为 29.18%, 西部地区为 25.97% 调查结果表明, 在江苏 上海 浙江等经济发达地区, 不但农民个人收入水平较高, 而且政府经济实力较强, 筹资额度大, 保障水平高, 对于缓解农民医疗负担的作用更为明显 ; 而在经济欠发达和不发达地区, 农民收入水平低且地方财政实力弱, 医疗问题就更为突出 3 村庄基础设施还比较落后 调查的结果显示, 多数农村对基础设施的需求远未满足 特别是村庄道路状况参差不齐, 饮水困难的问题尤为突出 从调查地区的情况来看, 村庄内道路的平均长度 9.97 公里, 其中硬化道路 4.69 公里 ;77% 的村饮水安全,41% 的村饮水存在困难,55% 的村有集中供水管道, 这些村中自来水用户比例为 68% 东部和中西部有明显差异 例如, 江苏每个村硬化道路的长度有 8 公里多, 而陕西不足 1 公里 饮水情况尤为明显, 江苏农村饮水基本全都安全, 与之相比, 青海 四川和甘肃等地存在饮水困难 4 农村社会公共服务质量有待进一步提高 从调查结果来看, 目前农村养老保险等社会保险覆盖率很低, 远低于新型合作医疗的覆盖率, 这说明这些社会保险还没有深入农村, 在农村广泛开展起来 此外, 在农村信息化程度的评价中, 农村电视和电话的普及率已经达到比较高的水平, 但计算机普及率非常低, 远低于电视和电话普及率, 这不仅说明目前我国农民 72

83 主要结论 的综合素质还比较低, 而且基础设施的硬件条件也没有达到 这些农村社会公共服务是救助弱势群体 缓解农村贫困的战略性创新, 关乎农民整体素质的提高和农村的可持续发展, 虽然目前我国的实现程度还很低, 但仍有较大的提高空间 ( 三 ) 乡风文明 : 任重道远 1 农村公共文化薄弱, 文化设施普遍较差 从每万人乡镇村文化站指标的评价结果来看, 全国平均水平为 0.73 个, 东部地区相对较高也仅为 1 个, 多数村庄多年来都没有过公共文化娱乐活动, 大部分村庄的文化设施都相当落后, 配备电脑 图书室的村庄如凤毛麟角, 中西部地区的文化和福利设施尤其薄弱, 这对于未来我国农村的乡风文明建设十分不利 2 各地区农村劳动力文化程度差异很大 2005 年我国农村劳动力受教育年限为 8.14 年, 其中东部地区已经达到 8.3 年, 中部和西部地区分别为 8.0 和 7.1 年, 这都较改革开放初期有了明显提高 但各地区之间差异仍然明显, 最高的北京达到 9.06 年, 而最低的西藏仅为 4.02 年 因此, 未来不仅要注重提高全国农民文化程度的综合水平, 还要不断缩小各地区之间的差异, 实现均衡发展 3 各地区农村社区和谐指数明显较高 评价结果显示,2005 年中国农村社区和谐指数平均为 80.52%, 东中西部地区分别为 86.4% 76.1% 和 78.1%, 整体指标的实现程度均比较高 这说明经过多年的发展, 中国农民的传统观念已经发生重大变化, 农民对各种现代观念接受程度普遍提高, 干群关系 邻里关系等已经得以妥善解决 ( 四 ) 村容整洁 : 积欠太多 1 村容整洁任重道远目前中国农村的环境改造还仅限于改水 改厕和村内道路硬化等内容, 垃圾和污水处理工作只在东部个别省份有所开展, 且从全国范围来看, 农村改水改厕和改路水平相对较低, 要达到新农村建设中村容整洁的目标, 还有很长的路要走 73

84 亚洲开发银行技术援助项目 TA4790 研究报告 2 与当地经济发展程度正相关, 东部最好, 中部次之, 西部最差从 2005 年农村卫生厕所普及率 粪便无害化处理率 清洁能源使用比重和农村路面硬化比重这几个指标来看, 农村环境的好坏和当地的经济发展程度密切相关 经济水平高的地区其环境治理的水平也较高, 相关环境基础设施也较齐全, 东部沿海省份的环境指标要高于中部省份, 西部省份的环境状况最差, 个别指标与全国平均水平和东部省份的水平相差很大 3 村民环境公德意识也是影响村容整洁水平的重要因素乱倒垃圾 乱堆粪便, 环境脏乱不堪, 是当前农村普遍存在的问题, 多数农民能够做到自己家里卫生整洁, 但对公共场所的环境卫生却态度漠然 不少村民没有认识到秸秆资源化利用的重要意义, 仍以秸秆作为日常生活的主要燃料, 在北方尤其严重 整体上看, 村民缺乏环境公德意识 4 国家对村容整洁有所忽视, 投入不足长期以来地方各级党委政府和村级组织对农村环保工作有所忽视, 在对全盘工作的安排上, 重经济发展, 轻环境保护 不少地方的农村对环保问题出现了无人过问, 放任自流的现象, 许多农村的生活垃圾基本上没有一套科学的处理方案 此外, 国家 集体在农村环保方面的资金投入不足, 致使很多村镇缺乏必要的基础卫生设施, 如公厕 垃圾箱 ( 桶 ) 垃圾运输车 垃圾处理厂等 ( 五 ) 管理民主 : 成效显著 1 农民民主意识薄弱, 区域之间差距明显农户分散经营, 各村民之间经济联系松散, 致使农民对村级事务的关心度大大降低, 多数农民放弃知情权 参与权, 更不要说行使管理权 监督权 从全国来看, 村组织双推双选率和村容自治完善度都在 80% 以上, 但是各地区差异明显, 北京 上海这两项指均达 96% 以上, 而云南 贵州这两项指标仅为 75% 72% 和 73% 69% 在村极层面上, 差距更加明显 2 市场经济的发展促进村民民主意识的觉醒全国村级政务公开满意度为 79%, 东中西部分别为 85% 80% 72%, 各地区差距不大, 但总体上并不高 目前市场经济使村民意识呈现多元化不平衡状态, 也导致村民行为尤其是参与行为的多层次性 普通务农者 乡镇企业职工 商业人 74

85 主要结论 员 个体户 私营业主 教师等因职业差异而对村务的参与程度和参与态度有明显不同, 但村民民主意识正在逐渐觉醒 3 村民对村集体事物的参与度与经济发展水平高度相关全国村容自治制度完善度为 83%, 东部地区这一指标达到 91%, 中部为 82%, 西部仅为 76%, 能够看出在村容自治完善度上东部高于中部, 中部则高于西部, 也与各地区经济发展水平相适应 从根本上讲, 市场经济的发展与民主参与水平的提高相一致 75

86 亚洲开发银行技术援助项目 TA4790 研究报告 76

87 新农村建设的问题与思考 七 新农村建设的问题与思考 ( 一 ) 关于新农村建设的主体 建设社会主义新农村是新形势下基于我国农村国情的重大历史任务, 应该说不论是单独的农民主体, 还是单独的政府主体, 都难以完成这一历史使命 ; 与全面彻底解决 三农 问题相吻合, 建设新农村需要责权利对称的系统的主体, 包括投资主体和建设主体等, 并且各主体之间是有机联结 相互影响 相互制约的关系 在新农村建设的系统中, 政府应是投资主体, 农民是建设主体 全面解决 三农 问题涉及到农业生产 农民生活 农村发展的方方面面, 每个方面又都由一系列具体的建设行动组成 各级政府不可能既是政策的制定者又是政策的具体执行者, 建设行动的主体应该而且必须由农民来承担 而仅有建设主体是远远不够的, 不论是生产建设 生活改善, 还是农村的综合发展, 每项建设都需要扎扎实实的人力 物力 财力的投入, 任何一项建设活动都需要实实在在的投资, 政府 ( 各级政府 ) 应该而且必须成为农业和农村事业发展的投资主体 总之, 我国的社会主义新农村建设需要系统的主体, 其中政府应是投资主体 ( 在某种程度上是不可推卸的责任 ), 农民应是建设主体 ( 是应尽的职责和义务 ), 而且还需要一个独立的机构成为监督主体 ( 迫切需要 ) 系统主体的共同作用将促进这项历史任务的顺利推进 ( 二 ) 关于新农村建设的实现时间 近年来我国的农村经济发展很快, 农业生产稳步发展, 农村基础设施和周边环境不断改善, 农民生活质量不断提高, 农村民主管理 村务政务公开成效明显, 这都为推进新农村建设奠定了基础 但是, 新农村建设毕竟是一项崭新的工作, 在农村人口众多 耕地面积急剧减少 基础设施比较落后的传统农业社会环境里实现这一历史使命, 其实践过程必然是相当艰难的 根据指标的测算, 我国的新农村建设还有很长的路要走, 特别是中西部地区实现程度明显偏低, 这说明我国的新农村建设还需要经历一个较长的历史过程, 既是一个渐行渐进的过程, 又是一个不断创新的过程 77

88 亚洲开发银行技术援助项目 TA4790 研究报告 ( 三 ) 关于新农村建设的瓶颈 经过 30 年的改革开放和发展, 我国已完全具备新农村建设所需要的基本物力 2005 年, 我国钢材产量达到 39,691 万吨, 原煤 21.9 亿吨, 水泥 亿吨, 新农村建设所需基本建筑材料均排在世界首位, 主要农业生产资料化肥总产量也位居世界第一, 完全可以满足基本的生产和建设需求 与此同时, 农业劳动生产率不断提高, 年, 平均每个农业劳动力生产的粮食从 1,089 公斤提高到 1,598 公斤, 棉花从 9.3 公斤提高到 18.9 公斤, 油料从 26.5 公斤提高到 公斤 农业劳动生产率的提高提供了大量农村富裕劳动力, 表明我国具备新农村建设所必需的基本人力 ; 按行业划分的国有农 林 牧 渔业企事业单位专业技术人员数为 万人, 新农村建设的专业技术人才也可基本满足需求, 因而建设主体也是基本到位的 鉴于以上物力 人力两方面的讨论, 可以发现, 我国新农村建设的瓶颈主要还是财力和资金投入 ( 四 ) 关于新农村建设的首要目标 在新农村建设中 生产发展 生活富裕 乡风文明 村容整洁 管理民主 均是其实现目标 应该说, 生活富裕 乡风文明 村容整洁 管理民主都是新农村建设外在的直接的体现, 而这些目标的实现最根本的就是要建立在一定生产力发展水平之上, 是农村的生产力发展到一定阶段的产物 而在目前的新农村建设过程中, 出现了一些偏差, 使新农村建设偏离了农村发展的实际, 例如一些地方不顾地方经济发展的实际, 大兴土木 耗巨资进行村容改造, 出现了诸如村外村 空心村 高楼林立等现象 在新农村建设的总要求和目标中, 生产发展 是放在第一位的 没有农村生产力的发展, 就没有农民收入的稳定和农民生活水平的提高, 农村也就没有发展的后劲, 新农村建设中的政治 文化 社会等目标的实现也就无从谈起 因此, 现阶段的新农村建设要将重点放在稳步提高农业劳动生产率上 这就要求加强农业基础设施的改造, 加强农业技术的提高和改进, 有层次 分步骤地发展现代农业 ( 五 ) 关于新农村建设的地区差异 我国东中西部地区的新农村建设实现程度存在很大差异, 这在现阶段我国农村发展进程中是非常正常的现象 东中西部农村本身在制度安排 制度结构及制 78

89 新农村建设的问题与思考 度变迁的方式等方面都表现出巨大的差异性, 从而产生出截然不同的经济绩效 2005 年我国东中西部 GDP 占全国的比重分别为 62% 20% 和 18%, 也就是东中西部地区是在经济发展的不同起点上进行新农村建设 同时从农村交通 基础设施 信息化程度等指标看, 东中西部地区的基础条件差异也比较大 由于各地区农村的地理环境 经济状况 生活习俗 发展水平千差万别, 这就决定了新农村建设在模式和规模上不可能 千篇一律 千村一面, 也就是东中西部地区的新农村建设必然根据各地区的实际情况, 采取不同的发展路径, 因地制宜 因村制宜地分步实施, 稳步推进 ( 六 ) 关于新农村建设的试点村 在目前的新农村建设过程中, 各地都是先搞试点, 然后整体推进 从总体来看, 在试点的选取和开展新农村建设方面都取得一定成效, 绝大多数试点也起到了应有的示范作用 但是也暴露出一些问题, 个别地方出现 跑部钱进 争试点的情况, 个别地方在试点的选取和建设上, 不是立足搞试点, 总结教训推广经验, 而是本着早出成效 速显政绩的思路, 走出一条选富村 试点村集中投资的道路, 而对穷村却是无人问津, 大多认为在穷村搞试点, 起点低 问题多 出效果慢且难出政绩 这种思想必然对新农村建设造成不利影响 : 一方面, 使选取的富村没有示范效应或示范效应辐射面小 ; 另一方面, 一些地方干部把新农村建设当成出政绩的手段, 追求新 快, 甚至把建设的资金集中投放到 点 上而放弃 面, 这样会造成物力 财力的不公平分配, 进一步加大试点村与其他村的贫富差距, 在财力支持有限的情况下, 给整个新农村建设大局带来不利的影响 79

90 亚洲开发银行技术援助项目 TA4790 研究报告 80

91 对策建议 八 对策建议 ( 一 ) 中央政府推进新农村建设的对策建议 新农村建设需要全社会的共同努力 从国家层面来看, 中央政府的职责是通过制定具有全局意义的指导性法规和政策, 为社会主义新农村建设提供有力保障 这些法规 政策的范围应涵盖制度约束 要素流动引导和经济社会协调三个方面 1 制定和完善有关新农村建设的法规和政策 制定的新农村建设法规主要包括关于新农村建设的产业发展 新农村建设规划 人口迁移和户籍管理 土地流转 新农村精神文明建设 农村社会保障 新农村管理体制等方面的内容 要围绕新农村建设的总体要求, 在推进产业发展 社会发展 基础设施建设 民主建设 人居环境建设等方面形成与新农村综合发展和相关法规要求相一致的政策体系, 逐步形成有利于新农村发展的政策环境 2 加强对全国新农村建设的试点引导 在新农村建设的试点选取上, 要进行充分的调查研究, 根据地域特点和农村生产发展水平的不平衡性, 科学地选取不同层次的试点 在经济较为发达的农村试点, 要把重点放在进一步推进现代农业上, 依据地域特点和地区的比较优势发展农村新型工业 在中等程度的农村试点, 重点是加强农业基础设施建设, 改善生产生活条件, 在稳步提高生活水平的基础上把新农村建设向更高水平推进 在较贫穷的农村试点, 首要的是找准贫困的原因, 解决农民最基本的生存问题, 为脱贫致富积极地创造条件 3 加大对新农村建设的资金投入 目前, 我国多数农村还不具备为新农村发展提供资金保障的自我循环能力, 需要国家加大对新农村建设的资金投入力度 资金保障可以通过财政投入 金融机构支持和社会资金利用等多方面来实现 国家财政预算要设立新农村建设专项资金, 大力扶持新农村经济发展, 加强基础设施 公共服务设施 人居环境改善, 农民社会福利保障 教育培训等方面建设, 支持农村各项事业发展 同时鼓励和引导金融机构 社会资金对新农村产业发展 新技术应用 基础设施和社会服务设施建设等 81

92 亚洲开发银行技术援助项目 TA4790 研究报告 方面提供资金支持 4 建立全国信息系统. 指导各地农村发展特色优势产业 组织建立全国农业发展信息系统, 为农村发展特色优势产业提供信息指导 建立全国农业信息协调机构和协调机制, 有效整合国家统计局 国家经济信息中心 农业部以及各省市的农业信息 ; 委托专业机构建立全国农业信息网, 对各种农业信息予以统一及时发布 ; 设立专项资金, 扶持大专院校 科研机构有关部门跟踪 分析 研究国外农业信息, 并及时提供给全国农业信息系统 ; 创办全国农业信息报, 以优惠 快捷 方便的方式提供给广大农民 ( 二 ) 省或市县推进新农村建设的对策建议 为落实中央政府的政策 法规, 需要市县以上地方政府结合本地实际制定相应的配套措施 1 开展本地新农村建设试点, 树立典型进行示范引导 通过新农村试点建设, 及时发现问题 调整思路 总结经验, 通过成功的新农村建设试点的影响, 示范和引导同类地区新农村建设工作 要在广播 电视 报纸 杂志 网络等各种媒体上广泛宣传这些典范的经验和做法, 为各个乡镇 各个村庄提供必要的学习榜样和经验借鉴 2 制定各地区新农村建设发展规划 根据各地区的基础设施 交通 生态环境以及各种资源和要素条件, 制定新农村综合发展规划 在充分调研和分析的基础上, 提出各地建设社会主义新农村的基本思路, 明确新农村建设的核心任务, 并就发展生产 增加农民收入 改善人居环境 发展地方文化和加强民主建设方面提出切实可行的对策和措施, 以此作为新农村建设的指导性文件 3 大力开展新农村建设培训 设立新农村建设专项培训资金, 用于对基层农村干部 技术人员和广大农民的农业技术和乡风文明等知识培训 充分利用教育培训机构, 开展社会公德 职业道德 家庭美德教育以及现代农业技术教育, 熏陶和影响农民的思想观念和日常生活习惯, 倡导健康 文明 科学的生活方式, 逐步把农民培养成为既具有现代知识技能, 又具有现代综合素质的新农民 82

93 对策建议 4 综合规划和建设区域性公共服务设施 公共服务设施既包括在新农村内部建设为本村服务的服务设施, 还需要有较大型的具有区域共享性特征的教育 医疗 文化 体育等服务设施 因此, 需要市 县有关部门组织专业技术人员进行调查研究, 针对未来城乡发展需要, 综合规划布局和建设区域性的公共服务设施, 科学指导发展实践, 确保新农村生产 生活和学习的需要 ( 三 ) 乡村推进新农村建设的对策建议 乡村是社会主义新农村建设的空间载体, 乡村管理机构是新农村建设的具体组织者, 也是中央 省 市 县各级政府关于社会主义新农村建设的相关法律 法规和政策的落实者 乡村一级管理机构所采取的新农村建设对策和行动在新农村建设中可以得到最直接的反映 1 推进农业产业化, 大力发展特色优势非农产业 稳定发展粮食和畜牧生产, 积极推进农业结构调整, 确保国家粮食安全 按照高产 优质 高效 生态 安全的要求, 调整优化农业结构, 努力改善农业生产条件 ; 大力发展农村二 三产业, 大力发展农副产品加工业, 加强农村商贸流通建设, 积极发展农村服务业, 加快发展观光农业 ; 大力发展农村专业经济合作组织, 成立农村专业协会 专业市场 经纪人组织和农庄业主协会等民间组织 2 加强村镇规划和基础设施建设 科学制定村镇建设规划, 按照 明确目标 科学规划 试点先行 总结经验 逐步推广 的原则, 分级分类编制建设规划, 因地制宜, 突出特色, 强化规划管理 ; 有序推进村镇建设, 鼓励农房建设相对集中, 按照城镇周边村 分散整治村和易地新建村三种类型分门别类推进村镇建设 扎实抓好示范村建设, 对于新农村试点村, 在制订规划 政策 项目 资金上实行重点倾斜, 确保建设成效, 以带动其他村全面进步 协调发展 3 加强生态保护, 美化村容村貌, 优化农村人居环境 加快农村路网建设, 加大通村公路建设力度, 全面实现通村公路硬化目标, 抓好组级和通户公路建设, 农户出行道路至少达到晴雨路标准 ; 加快农村改水进程, 大力实施农村安全饮水工程, 城郊及沿江地区, 通过延伸城市供水管道集中供水, 83

94 亚洲开发银行技术援助项目 TA4790 研究报告 乡镇周边村集中纳入乡镇统一集中供水, 居住分散且无水源的地区, 采用集雨工程解决供水问题 ; 加快生态家园建设, 大力推广生态微灌技术, 提高 三沼 综合利用率和农村人畜 养殖小区粪便沼化率 ; 加快信息网络建设, 探索电信通信网 互联网 广电网 三网合一 的运行机制, 加速推进农村信息化 4 加强农村民主和精神文明建设 加强农村民主法治建设, 进一步健全村党组织领导下的村民自治机制, 完善村级民主选举 民主决策 民主监督 民主管理的各项制度, 实现基层民主的制度化 规范化和程序化, 积极推行和完善党务公开 村务公开 ; 加强教育, 提升农民的思想道德素质, 开展以热爱家园 遵纪守法和移风易俗为主要内容的思想道德教育, 着力提升广大农民的思想道德水平 ; 加强宣传 教育和引导, 树立文明乡风 民风, 注意搜集农村中优秀乡风乡俗典型事例, 在报纸 杂志 电视等媒体上广泛宣传, 定期举办 优秀村民 或 文明村民 评选活动, 并进行隆重表彰, 以弘扬文明乡风 推进农村改革发展, 建设社会主义新农村, 胜利实现全面建设小康社会, 是我国现代化进程中的重大历史任务, 是新形势新任务的必然要求, 也是造福亿万农民的一项伟大工程 继党的十六届五中全会之后, 党的十七大再次向全党提出了 统筹城乡发展, 推进社会主义新农村建设 的宏伟目标 在党的十七大精神指引下, 只要坚持以科学发展观为指导, 开拓创新, 不断探索, 善于发现问题和总结经验, 推进社会主义新农村建设, 全面建设小康社会的宏伟目标就一定能够胜利实现 84

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100 Study on Establishing a Monitoring and Evaluation System for New Socialist Countryside Construction 44