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1、河南大学 硕士学位论文 农村公路养护中的县级政府职能研究-以河南省开封市杞县为例 姓名：王文华 申请学位级别：硕士 专业：管理学、行政管理 指导教师：郝亚光 2011-05 I 摘 要 农村公路作为农村最主要的交通基础设施，直接关系着农民的生活和生产，是建设 社会主义新农村和发展农村经济社会的重要组成部分。 “要想富，先修路” ，这是农村及 城市的致富心经。农村公路养护供给问题是我国统筹城乡发展、全面建设小康社会过程 中面临的重大问题。农村公路大量建成后，怎样巩固其建设成果，做到“三分建，七分 养” 、 “三分修，七分养” 。由于建设的资金有限，农村公路的标准等级相对比较低，再 加上当地县级政
2、府未很好发挥其职能及作用、养护责任主体不明确、养护资金不足、养 护管理不到位、养护体制不健全等问题，使农村公路缺乏有效的专人管理，出现了“一 年修路、两年丢路、三年后路变成大水沟”的现象，这导致了农村公路养护服务功能较 低，严重地阻碍了农村经济的发展和农民生活质量的提高。 本文基于公共产品理论、治理理论、新公共服务理论的理论依据，运用历时性分析 法、实证与理论分析相结合的研究方法，进行文献材料整理，采用了自下而上全新的研 究视角对农村公路养护中的县级政府职能展开研究， 通过对杞县农村公路养护中县级政 府的历史追溯，分析农村公路养护中县级政府主要有哪些职能和作用，存在哪些不足， 探求新时期县级政
3、府促进农村公路养护的有效路径，以加快社会主义新农村建设的步 伐，促进农业及农村现代化。从县级政府的职能角度看，对管辖地区提供公共产品是政 府公共事务管理职能的主要表现，为居民提供公共产品和公共服务是政府最核心的职 能，但现实的情况却是偏离了其正常的轨道。重新对县级政府进行角色和职能定位，解 决其职能错位、缺位问题，才能更好地推进社会主义新农村建设。 本文认为在农村公路养护中政府职能应有：第一，养护责任主体职能。农村公路管 理养护体制改革后，县级人民政府是辖区内农村公路管理养护责任主体，负责筹措和管 理农村公路养护资金，制定辖区内农村公路养护的实施细则。第二，投资主体职能。农 村公路属于地方性准
4、公共产品，服务的对象是人民大众，县级政府应加大对农村公路养 护的财政支持力度，这是养护好农村公路的根本保证。第三，规划决策职能。县级政府 应结合新农村建设的目标和农村的实际需求来制定规划， 对农村公路养护和养护资金做 出科学的、合理的决策。第四，政策引导和产权保护职能。县级政府通过恰当的政策引 导和合理的激励机制，还要发挥好政府的产权保护职能，使非政府部门为农村公路养护 II 提供补充资金。第五，管理监督职能。县级政府要切实履行管理监督职能。政府应通过 不同途径，建立全方位，多层次的监督体系，对农村公路养护的供给过程和使用过程进 行有效的监督。 为了更好地养护农村公路，建设社会主义新农村，县级
5、政府应适应市场经济的发展 要求，把政府工作重点真正转移到为农民提供公共服务上来，为农村的生产和生活提供 更好的基础设施条件。 关键词：农村公路，县级政府，对策 III ABSTRACT Rural highways - as the main transportation infrastructure in rural area, are directly related to the peasants lives and production,is an important component of the construction of socialist new countryside
6、and development of the rural economy. “Want to get rich, first build roads”, is the truth of building up a fortune in rural and urban area. Rural highway maintenance supply is the major issue during the process of Chinas urban and rural development and the well-off societys construction. After the c
7、ompletion of the massive rural highways, “partly building, mostly maintenance”, “partly repairing, mostly maintenance” is our aim to consolidate construction of rural highways. Due to the limited funding, the construction of rural highways standard level is relatively low. The rural roads are lack o
8、f effective assigned management because of the irresponsible duty-serviced local county governments, unclear maintenance doers, maintenance fund shortage, low quality maintenance management and imperfect maintenance system, which led to the phenomenon that “First year built, second year lost, third
9、year became big ditch”，leading to low function of the rural highway maintenance service, seriously hindering the development of rural economy and the improvement of farmers quality of life. This paper based on the public goods theory and management theory, the new public service theory, using the th
10、eoretical basis of the diachronic analysis and empirical and theoretical analysis, adopts the new bottom-up perspective on the county government functions on rural highway maintenance. Through QiXian rural highway maintenance in the county government historical retrospection, the paper is to analyze
11、 the main county government function and the role in the rural highway maintenance, seeks to promote rural highway maintenance county government effective path to speed up the construction of the new socialist countryside, promoting agricultural and rural pace of modernization. From the perspective
12、of county government of jurisdiction, providing public products is the government public affairs management function, and providing public products and public service for residents is the core function of government, but the reality is deviated from its normal track. Relocating the role of county go
13、vernment and functional position, solving their problems, and functional dislocation absence can better promote the construction of a new socialist countryside. This paper argues that government function in rural highway maintenance : first, maintenance IV responsibility subject function. Rural high
14、way management maintenance system reform, within the jurisdiction of the peoples government at the county level is rural highway management responsibility subjects, responsible for maintenance raise and manage rural highway maintenance funds, formulating within the jurisdiction of the detailed rules
15、 for the implementation of rural highway maintenance. Second, the investment subject function. Rural highway endemic quasi-public product, service object, the governments at county level is the mass of rural highway maintenance should intensify the financial support, and it is to maintain the fundam
16、ental guarantee of the rural roads. Third, planning and decision-making functions. The governments at county level should combine the new rural reconstruction goal and the actual demand of rural to make plans for rural highway maintenance and maintenance funds make scientific and rational decisions. Fourth, the policy guidance and intellectual property protection function. The governments at county level through appropriate policies to guide and reasonable incentive mechanism, make non-
