2004年至2013年连续十个中央一号文件都着力关注“三农”问题，国家对“三农”投入的总量、增量和增幅，也是多年来少有的。但是，城乡经济社会发展差距扩大的趋势并没有得到遏制，城乡居民收入差距持续扩大，城乡公共服务水平悬殊，城乡面貌反差巨大。出现这种局面与二元结构下形成的生产要素配置机制有很大关系。特别是土地收益、金融资源等关键性生产要素，在二元结构体制的惯性作用下，仍然大量由农村流向城市，并且在很大程度上抵消了国家为统筹城乡发展所做出的努力。这说明“三农”发展光靠投入是发展不起来的，还是要引导关键性要素流向农村，在建立有利于“三农”发展的生产要素配置机制上下功夫。

From 2004 to 2013, ten consecutive focusing on the central file no. 1"Agriculture, rural areas and farmers"The problem,Countries to"Agriculture, rural areas and farmers"The total amount of investment/Increment and the growth rate,Is also rare for many years.but,The widening gap between urban and rural economic and social development trend has not been contained,Urban and rural residents widening income gap,Urban and rural public service levels,Urban and rural areas face the huge contrast.Appear this kind of situation and under the dual structure formation configuration mechanism factors of production have very big concern.Especially the land revenue/Key factors of production such as financial resources,Under the dual structure system of inertial effect,Still a lot of from rural to urban,And largely offset the country as a whole urban and rural development efforts.This shows that"Agriculture, rural areas and farmers"Development on investment is not,Or to guide the key elements to the countryside,In setting up"Agriculture, rural areas and farmers"Production factors of the development of the configuration mechanism.

　　二元经济结构及生产要素市场的二元性

Dual economic structure and the duality of production factors market

　　二元经济结构的基本内涵

The basic connotation of dual economic structure

　　二元经济结构是指在一个国家中，“传统农业部门”与“现代工业部门”并存，且两部门的生产力水平存在巨大的差异，“现代工业部门”的生产力水平较高，经济效益较好，而“传统农业部门”的生产力水平较低，经济效益较差。由于生产力水平决定劳动生产率，所以二元经济结构也表现为两部门劳动生产率的差距。因此，要从根本上推动二元经济结构转变，就必须提高“传统农业部门”的生产力水平，缩小两部门生产力水平的差距。从狭义的“生产力三要素论”看，农业生产力水平的提高取决于劳动、生产资料的投入。从广义的角度看，农业生产力水平的提高取决于资本、土地、劳动、技术、信息等生产要素的投入，两部门生产要素的投入是生产要素市场的分配机制所决定的。

Dual economic structure is to point to in a nation,"Traditional agricultural sector"With the"Modern industrial sector"Exist side by side,And two sector productivity level there is a huge difference,"Modern industrial sector"Higher levels of productivity,Economic benefit is good,while"Traditional agricultural sector"The low level of productivity,Poor economic benefits.Labor productivity is determined by productivity level,So the dual economic structure also show the two sector labor productivity gap.so,To fundamentally promote the dual economic structure transformation,We must improve"Traditional agricultural sector"The level of productivity,Close the gap between two department level of productivity.From the narrow sense of"The three elements of productivity theory"Look at,The improvement of agricultural productivity depends on labor/Means of production.From the generalized point of view,The improvement of agricultural productivity depends on the capital/land/labor/technology/Information such as factors of production inputs,Department of two factors of production input is the distribution of production factors market mechanism.

　　生产要素市场的二元性

The duality of production factor market

　　生产要素市场二元性是我国特有的现象，是指作为要素市场两大主体的城市和农村，两者之间相互独立，缺乏联系的深度和广度。城市的工业化水平高，分工发达，专业化组织规范，经济主体之间的交易频繁，对各类生产要素需求大，这就使得城市的金融市场、技术市场、信息市场、劳动力市场、房地产市场、产权市场比较发达。相反，农村的商品化和市场化水平比较低，生产要素的交易需求小，这就导致农村的金融市场、劳动力市场、土地市场和信息市场欠发达。所以，我国生产要素市场的二元性主要体现在两大市场主体之间的“独立性”和“差异性”。

Production factors market duality is a peculiar phenomenon in our country,Refers to as two elements of market main body of the urban and rural areas,Between the two are independent of each other,The lack of depth and width of the contact.High level of industrialization of the city,Division of labor in developed,Professional organization,Transactions between economic agents frequently,Demand for all kinds of factors of production,This makes the city's financial markets/Technology market/Information market/The Labour market/The real estate market/Property market is more developed.instead,Rural commercialization and marketization level is low,Factors of production demand is small,This leads to the rural financial market/The Labour market/Land market in less developed markets and information.so,The duality of production factors market in China is mainly manifested in two between market subjects"independence"and"differences".

　　生产要素市场二元性下的非均衡分配

Production factors market disequilibrium distribution of duality

　　改革开放以前，在赶超战略下，政府制定了“重工轻农”的战略方针。在政府行为的干预下，一方面，大量的资本和技术人才流向现代工业部门，同时占有农业的资本积累和利用工农产品价格的“剪刀差”来满足现代工业部门快速发展的需求。另一方面，城市发展工业，农村只发展农业，在严格的城乡户籍制度的限制下，农村剩余劳动力既无法向城市转移，又无法在农村内部向工业部门转移。农业在无法获得充足的资本积累、技术人才投入并存在大量剩余劳动力的情况下，农业发展缓慢，但同时现代工业部门在资本和技术人才的支持下得到了快速的发展，使得原本存在的二元经济结构得到强化。

Before reform and opening up,Under the surpassing strategy,The government set out"Heavy industry light agriculture"The strategy of.Under the intervention of government behavior,On the one hand,Large amounts of capital and technology talents flow to the modern industrial sector,At the same time possess the capital accumulation and utilization of the agricultural product price of workers and peasants"The scissors"To meet the needs of rapid development of modern industrial sector.On the other hand,Urban industrial development,Only agricultural development in the countryside,Under the strict restriction of urban and rural household registration system,Rural surplus labor force can't transfer to the city,Can't in rural internal transfer to industrial department.Agriculture in don't have access to sufficient capital accumulation/Technical personnel and the presence of a large number of surplus labor force,Agricultural development is slow,But at the same time, modern industrial sector with the support of capital and technical talent got rapid development,Makes the originally existing strengthen the dual economic structure.

　　改革开放以后，国家取消了“重工轻农”的战略，推行计划经济体制的转变，部分不合理的制度得到放松，农村的农业、工业有了一定的发展，农村市场开始盘活，但是我国生产要素市场二元性仍然存在。生产要素市场二元性决定了资本、技术、信息等生产要素在城乡之间的非均衡分配，在原有工农业发展差距背景下，工业更容易得到各种生产要素，而农业却难以得到促进自身生产力水平和劳动生产率提高的各种生产要素的支持，两者在经济效益方面的差距进一步加剧了生产要素在两部门之间的不均衡分配，二元经济结构转变的进程缓慢。在我国经济体制转变过程中，正是由于生产要素市场二元性的存在引起各种生产要素在两部门之间非均衡分配，从而导致两部门生产力水平和劳动生产率之间的差距逐渐形成且难以消除。

After the reform and opening-up policy,Country is cancelled"Heavy industry light agriculture"The strategy,To implement the transition of the planned economy system,Some unreasonable system of relaxation,Rural agricultural/Industry has a certain development,To revitalize the rural market,But still exists duality production factors market in China.Production factors market duality determines the capital/technology/Information such as factors of production in the unbalanced distribution between urban and rural areas,Under the background of the original gap between industrial and agricultural development,Industries are more likely to get all kinds of factors of production,And it's difficult for the agriculture to promote their own level of productivity and labor productivity of all sorts of factors of production support,Economic gap between the two further exacerbated the factors of production in the uneven distribution between the two departments,The slow process of dual economic structure transformation.In the process of economic system transition in China,Is caused by production factors market duality exists all sorts of factors of production in the unbalanced distribution between the two departments,Leading to the gap between the two department level of productivity and labor productivity gradually formed and difficult to eliminate.

　　二元经济结构下我国农村资本要素配置的变迁

Under the dual economic structure of China's rural capital elements of configuration changes

　　新中国成立后，我国在极低的工业化起点上开展大规模工业化建设，面临着资本原始积累问题。为了服从当时重化工业优先的发展战略，中国建立了一套类似于前苏联，又有很强中国特色的一整套高度集中的计划经济体制。为此，需要有一套不同于市场调节机制的宏观经济政策环境，使资源的配置有利于重工业发展。具体地说，就是要人为地降低发展重工业的成本，同时提高资源动员能力，包括为重工业发展提供廉价的劳动力、资金、原材料，以及进口设备和技术，为重工业筹措资金。因此，资本要素的配置也遵循着“二元金融”的逻辑安排展开。

After the founding of new China,At very low in our country industrialization starting point to carry out large-scale industrial construction,Facing the problem of primitive accumulation of capital.In order to obey the heavy industry priority development strategy,China established a similar to the former Soviet union,And has a strong set of highly centralized planned economic system with Chinese characteristics.To do this,Need to have a different from the market regulating mechanism in the macroeconomic policy environment,Makes resource configuration is advantageous to the development of heavy industry.specifically,Is to artificially reduce the cost of developing heavy industry,At the same time improve the ability of resource mobilization,Including heavy industry development provide cheap labor/money/Raw materials,And imported equipment and technology,To raise funds for heavy industry.so,Configuration of capital elements also follows"Binary financial"The logical arrangement.

　　第一阶段(1979年至1993年)：独立的农村金融安排

The first stage(From 1979 to 1993):Independent of the rural financial arrangement

　　在1979年以前，计划经济模式下的金融体系基本是按照“二元经济”和“二元金融”的逻辑安排，优先发展重工业，通过不等价的工农交换获得原始资本积累，为重工业筹措资金。也就是说这之前的金融安排制度是动员农村储蓄，支持工业发展，没有建立起真正为农民服务的金融组织。1979年之后，恢复和建立农业银行(601288,股吧)，农信社也从政社合一的体制下解放出来，随后成立了国家农业（林业）投资公司等，农村金融组织体系基本建立。在正规金融难以满足农村需求的情况下，非正规金融组织对活跃农村金融市场，提高金融效率，促进农村经济发展也起到了积极作用。国家放开了对民间信用的管制，农村合作基金会、私人钱庄等开始发展。但农业银行身兼政策性和商业性双重任务，不利于商业化发展和经营管理的改善；农信社发展独立性差，经验困难重重，正规金融和非正规金融的发展均存在很多问题。所以，以建立农村金融体系为目的的第二轮农村金融改革势在必行。

In 1979 years ago,Planned economy is basically in accordance with the mode of financial system"Dual economy"and"Binary financial"The logical arrangement,Priority to the development of heavy industry,Through the inequivalence exchange of workers and peasants to obtain the original accumulation of capital,To raise funds for heavy industry.That is to say the financial arrangements before the system is to mobilize rural savings,Support the development of the industry,Not build real financial organization which serves for the farmer.1979 years later,Recovery and establish agricultural bank(601288,stocks),From integrate-politics-and-c ommun e under the system of rural credit cooperatives,Then set up the national agriculture(forestry)Investment companies, etc.,The rural financial organization system basic establishment.In the case of rural formal financial hard to meet the demand,Informal financial organizations active rural financial market,Improve the efficiency of the financial,To promote rural economic development also played a positive role.Countries liberalized the restrictions on folk credit,Rural cooperative foundation/Developed private bank, etc.But agricultural bank both policy and commercial dual task,Is not conducive to commercial development and the improvement of the operation and management;Development of rural credit cooperatives independence is poor,Experience the difficulties,Formal finance and informal finance's development there are a lot of problems.so,On the establishment of a rural financial system, for the purpose of the second round of the rural financial reform is imperative.

　　第二阶段(1994年至1996年)：三位一体的农村金融体系

The second stage(From 1994 to 1996):The trinity of rural financial system

　　本着“建立一个能为农业和农村经济发展提供及时、有效服务的农村金融体系”的目标，一系列新的农村金融制度安排出台，1994年，支持农村金融发展的政策性银行——中国农业发展银行成立。试图剥离农业银行和农信社的政策性金融业务，以国家信用为基础筹集资金，代拨财政支农资金，为农村经济发展服务。1996年，农信社脱离与农业银行的隶属关系，向合作制方向发展，并有步骤地准备组建农村合作银行。三位一体的农村金融体系此时初步形成，即为农村提供金融服务的三家机构：农业银行发放商业性贷款、农业发展银行负责政策性贷款、农信社按合作制原则发放小额农户贷款，形成商业性金融，政策性金融和合作性金融分工的农村金融组织体系。

In line with the"Establish a provide timely for agricultural and rural economic development/Effective service of rural financial system"The goal of,A series of new rural financial system arrangement,In 1994,,Support the development of the rural financial policy Banks, the agricultural development bank of China was founded.Trying to divest the agricultural Banks and rural credit cooperatives of policy financial business,On the basis of the national credit to raise money,Generation of the financial funds for supporting agriculture,Services for rural economic development.In 1996,,From the rural credit cooperatives and agricultural bank of subordinate relations,To develop in the direction of cooperative system,And prepared to gradually form a rural cooperative bank.The trinity of rural financial system has been formed at this time,Which provides financial services for rural three agencies:Agricultural bank issuing of commercial loans/Agricultural development bank is in charge of policy loans/Rural credit cooperatives according to the principle of cooperative system lending for small farmers,Form the commercial finance,Policy finance and finance division of rural cooperative financial organization system.

　　但在农信社商业化发展的过程中，随着农村金融需求的大幅增加，金融缺口也越来越大。农信社自身产权不明晰、资本金不足等历史问题，使其难以担当支农主力军。农信社面临着多种角色冲突：合作性，商业性，还是政策性？于是民间借贷兴起，金融纠纷和金融市场的寻租现象普遍，农村金融的风险不断曝露。这期间，国家整顿了农村合作基金会，明确了其不属于金融机构，三位一体的农村金融体系在面对现实考验下才发现，农村的金融需求不可能从正规金融机构获得满足，农业的高风险和苛刻的贷款条件使得正规金融走向了必然的“离农”。正规金融安排的不足，需要非正规金融安排补充。

But in the process of commercialization in the development of rural credit cooperatives,Along with the rural financial demand increased dramatically,The financial gap is becoming more and more big.Rural credit cooperatives own property right is not clear/Such historical problems as inadequate capital,Make it difficult to support agriculture.Rural credit cooperatives is faced with a variety of role conflict:cooperative,commercial,Or the policy?Private lending is then arisen,Financial disputes and rent-seeking phenomenon in financial markets generally,The rural financial risk exposure.During this time,National consolidation in the rural cooperative foundation,Made clear it doesn't belong to financial institutions,Trinity of rural financial system in the face of reality test,The rural financial demand is unlikely to get satisfy from formal financial institutions,Agriculture of high-risk and stringent loan conditions makes the formal financial to the inevitable"Away from the farm".The lack of formal financial arrangements,Added to informal financial arrangements.

　　第三阶段（1997年至今）：商业化和多元化的竞争格局

The third stage(1997 to present):The competitive landscape of commercialization and diversification

　　1997年，包括农业银行在内的国有商业银行开始收缩和撤并县以下机构，将战略重点转移到了大城市、大企业和大项目，较少考虑农村经济的发展需求。农信社产权改造后逐步形成了四种产权关系：农村商业银行、农村合作银行、县级农信社统一法人及县乡两级法人以解决农信社生存和发展问题。此外在中央倡导资金回流农村的背景下，历史清白、网络庞大和深入基层的邮储银行作为支农最佳人选于2007年3月正式挂牌成立，在定位社区银行同时担负服务“三农”重任，农村金融机构又添新军。与此同时，农村金融体制改革的重心转向正规金融机构的商业化变革，人民银行加大了对非正规金融的管制，农村合作基金会关闭，非正规金融体系主要以亲友间个人借贷、高利贷等为主。2007年3月以来，四川仪陇村镇银行的成立标志着农村金融改革和发展进入新的阶段。银监会出台了放宽农村金融机构准入政策，小额贷款公司、村镇银行和资金互助社开始纷纷成立，地方中小型银行在鼓励政策的推动下纷纷成立便于更好地服务“三农”。本着“增加供给主体满足多元化需求，激发农村金融市场竞争活力”的目标，农村金融市场开拓了一条崭新的多元化发展道路。

In 1997,,Including agricultural bank of China, state-owned commercial Banks began to shrink and streamline county the following organizations,The strategic focus moved to big cities/Big business and big project,Think less demand for the development of rural economy.After the property rights of rural credit cooperatives reform gradually formed four property right relations:Rural commercial bank/Rural cooperative bank/County-level rural credit cooperatives corporate unity and township levels in order to solve the problem of survival and development of rural credit cooperatives.In addition in the central advocate money back under the background of rural areas,Clean record/Large network and grass-roots level post office bank as the best candidate formally founded in March 2007,In positioning community Banks for service at the same time"Agriculture, rural areas and farmers"task,Added new rural financial institutions.At the same time,The rural financial system reform of the focus to the commercialization of the formal financial institutions,The people's bank of China increased the regulation on informal finance,Rural cooperative foundation to shut down,Informal financial system mainly by the personal loans between family and friends/Usury, etc give priority to.Since March 2007,Sichuan yilong establishment of village Banks marks the rural financial reform and development entered a new stage.The China banking regulatory commission issued ease rural financial institutions access policy,Small loan companies/Village Banks started to set up a support and funding,Local small and medium-sized Banks under the impetus of the incentives were set up to facilitate better service"Agriculture, rural areas and farmers".In line with the"Increased supply diversity to meet the demand,Activate the rural financial market competition"The goal of,The diversification of rural financial market opens up a new development path.

　　二元经济结构下农村资本要素的配置特征

Under the dual economic structure of rural capital configuration characteristics of the elements

　　部门配置：向城市和工业部门倾斜的储蓄动员

Department of configuration:Declining savings mobilization to urban and industrial departments

　　自计划经济时期，包括农村金融在内的整个金融体系，是按照“二元经济”和“二元金融”的逻辑，围绕城市工业化建立和发展的，目的是为发展重工业筹措、配置资金。1978年以后，市场的逐步放开和各个地方对经济增长的追求，使得资金短缺。在资本短缺的基本背景下，大量资金在中央政府主导的金融纵向分割和地方政府主导的金融横向分割下，流向了国有工业部门，农村部门更多的表现出的是一种储蓄动员功能，涉农贷款占比尽管不断攀升，但占比仍然较低。统计表明，从1996～2001年，农村信贷资金净流出从1912亿元增加到4780亿元，增长1.5倍；到2003年，每年都有超过5000亿元的农村资金需求得不到满足。此后，中国经济经历了长达八年的流动性过剩局面，大量的资金通过各种渠道进入资金效率高的国有部门，在资本雇佣劳动的导向下农村地区的资金短缺却没有在过剩背景下得到缓解。2009年爆发了国际金融危机，一揽子的刺激政策相继出台，通过银行等渠道投放的4万亿元贷款几乎70%的流向了房地产、股市和传统强势产业，助长了一轮疯狂的房价上涨噩梦，而农村地区却在这场保卫战中并未得到多少收益，鉴于目前农村工业还处于复兴阶段，城镇化之路才刚起步，很多农村基础设施和配套环境较差，对于资金吸引力较小。

From the planned economy period,The entire financial system, including the rural financial,Is in accordance with the"Dual economy"and"Binary financial"The logic of the,Around the establishment and development of city industrialization,Purpose is to raise for the development of heavy industry/Capital allocation.1978 years later,Market gradually open and all parts of the pursuit of economic growth,Make a shortage of funds.Under the background of basic capital shortage,A lot of money in the central government-led financial split lengthwise and local government-led financial under transverse segmentation,Flow to the state-owned industrial sector,Rural sector more show is a kind of savings mobilization function,Despite the rising of agricultural loans accounted,But still had a lower proportion.Statistics show that,From 1996 to 2001,Rural credit capital outflows increased from 191.2 billion yuan to 191.2 billion yuan,Increased 1.5 times;By 2003,Each year, more than 500 billion yuan of rural capital needs are not being met.Since then,China's economy has experienced eight years of excess liquidity situation,A lot of money through various channels into the state sector funds with high efficiency,In under the guidance of capital employing labor shortage of funds in rural areas not under the background of excess.The international financial crisis broke out in 2009,Stimulus package have issued,Through the bank channel such as dropping nearly 70% to 4 trillion yuan of loans in real estate/Strong stock market and the traditional industry,Add to the round of crazy prices nightmare,While in rural areas did not get much profit in this battle,Given the current rural industry is still in the recovery phase,Path of urbanization has just started,Many poor rural infrastructure and supporting environment,Less attractive to capital.

　　结构配置：信贷投放的非农化

Structural configuration:Credit of the conversion

　　对农村融资来讲，这些年，国家一直在下大力气增加对“三农“的信贷投放，但农村资金供给不足，有效金融需求得不到满足的局面仍在延续和加剧，商业银行出于商业动机，经营重点主要面向城市，“非农化”趋势难以通过行政手段得到缓解。2008以来，为了解决农村贷款难，人民银行与相关部门先后印发了《关于加快推进农村金融产品和服务方式创新的意见》、《关于全面推进农村金融产品和服务方式创新的指导意见》，在全国范围内积极推进农村金融产品和服务方式创新工作。农业银行、邮政储蓄银行、农业发展银行也本位回归，不断加大支持力度，重新布局农村市场，扭转了自1999年以来逐步从农村撤走、经营重点转向城市的局面，新型农村金融机构也冉冉兴起，多层次的支农体系已经初见雏形，但是囿于农村地区长期以来面临着抵押担保物缺乏，土地产权归集体所有的问题，金融机构信贷投放非农化的局面虽有改善，但还有很长的路要走。以农村信用社这一支农主力军来说，其农业贷款与农户存款的比率一直在40%～50%，这说明农村资金非农化还是较为严重。2010年，人民银行出台涉农信贷政策导向效果评估办法，通过对达标县域法人金融机构和农业银行改革试点县级“三农金融事业部”执行较低的存款准备金率，引导和改善农村金融资源配置。

For rural finance,Over the years,Countries have been strive to increase"Agriculture, rural areas and farmers"The supply of credit,But rural capital supply,Effective financial situation continues and unmet needs,Commercial bank by commercial motives,The main emphasis business oriented city,"non-agricultural"Trend is difficult to ease through administrative means.Since 2008,In order to solve the rural loans difficult,With relevant departments of the people's bank has issued[On accelerating rural financial product and service innovation]/[On comprehensively advancing rural financial product innovation and service guidance],Across the country actively promote the innovation in rural financial products and services.Agricultural bank of China/Postal savings bank/Agricultural development bank also standard regression,Increasing support,Redesign of the rural market,Reversed since 1999 gradually withdraw from the countryside/Business focus to the situation of the city,The new type of rural financial institutions also gradually rise,Multi-level system of supporting agriculture has produced a prototype,But secure in rural areas has long been faced with lack of collateral,Land property rights belong to the collective all the problems,Non-agriculturalization of financial institutions credit situation is improved,But there is still a long way to go.In the agriculture main force of rural credit cooperatives,Its agricultural loans and peasant household savings rate has been 40% ~ 50%,This suggests that the non-agriculturalization of rural capital is still serious.In 2010,,The people's bank of agricultural credit policy guidance effect evaluation method,Based on standard county legal financial institutions and the agricultural bank reform pilot at the county level"Agriculture, rural areas and farmers financial business"Perform lower the reserve requirement ratio,Guide and improve the rural financial resources allocation.

　　区域配置：金融资源配置的不均衡

Regional configuration:Imbalance of financial resources allocation

　　金融二元制度结构下，金融资源的区域化配置在农村和城镇表现出不同的规模和深度，存款资源和信贷资金向城镇集中的趋势越来越明显。相比较而言，东部地区经济基础条件和配套好，对资金的吸引力较大，很多西部地区的资金都流入资金效率较高的东部地区，从而恶化了金融资源的区域配置布局。农村地区金融发展滞后，交易网点和现代化的结算系统较少，金融资源在农村的集中度较低的局面因为农村近年来再支付、征信以及配套环境的劣势而难以短期通过政策的疏通引导短期改善。2005年，经济相对发达的珠三角农村地区城镇化率就达到79.63%，这已经接近美国2003年的水平，但是经济欠发达的西部地区的农村地区与东部沿海的农村经济发展水平存在较大差异。2008年，江苏地区的农村储蓄存款为13836.74亿元，是西部地区甘肃省507.06亿元的27.3倍，是青海省56.2亿元的246倍左右。这一差距在西部大开发的推动下近年有所缩小，西部地区的农户存款有所上升，但总体来看资金向东部地区流动的金融配置路线并没有改变。

Under the dual system of financial structure,Regional configuration of financial resources in rural areas and towns showed different size and depth,Deposit resources and credit funds to cities and towns centralized trend is more and more obvious.In comparison,The eastern region and good economic foundation conditions,To attract capital,Many in the western region capital inflows to the eastern region of high efficiency,To worsen the financial resources of the region configuration layout.Financial development lags economic growth in rural areas,Less trading network and modernization of the clearing system,Low concentration of financial resources in rural areas because the countryside in recent years to pay/Credit reporting and the supporting environment of disadvantage to unblock guides short-term improvement of short-term through policy.In 2005,,Economy is relatively developed pearl river delta rural urbanization rate reached 79.63%,This is close to the United States in 2003,But the economy in rural areas and underdeveloped regions in western China on the east coast of the rural economic development level is put in bigger difference.In 2008,,Jiangsu region's rural savings account is 1.383674 trillion yuan,Is 27.3 times that of the western region of gansu province 50.706 billion yuan,Is 5.62 billion yuan about 246 times in qinghai province.The gap under the impetus of the western development has shrunk in recent years,In the western region of peasant household deposits has increased,But overall capital flows to east region does not change the route of the financial allocation.

　　功能配置：农村政策性金融呈现弱势性

Functional configuration:Rural policy financial weakness

　　改革开放以来，我国一直注重金融机构的改革，注重金融机构的存在形态，这种思路认为只有在现有的金融框架下，根据现有的金融结构赋予其相应功能，通过行为绩效判断其效果。遵循的是“结构—功能—行为绩效”的思路和路径。因此，几轮的改革瞄准的重点是建立竞争充分的农村金融体系，丰富农村金融主体，但金融机构的功能观考量较少，导致政策性金融存在明显的弱势特征。同时，农业保险的发展也一直处于滞后阶段，由于农业特质性风险和农业的产业利润率不高，商业保险不愿进入，使得农业保险长期的处于“需求有限、供给不足”的状态。近年来，很多农业的险种开始采取国家出钱投保，如“能繁母猪”等险种，但大部分农业保险险种还未试点推广，保险体系的滞后导致金融支农的激励不足，后续的风险分散和补偿机制不完善，从而加剧了弱势性的持续。

Since the reform and opening,Always pays attention to the reform of financial institutions in our country,Pay attention to the existence of financial institutions,This line of thinking that only under the existing financial framework,According to the existing financial structure to give its corresponding function,Through the behavior performance to judge the effect.Follows the"Structure, function, behavior performance"The ideas and paths.so,Several rounds of reforms aimed at establishing competition is the focus of the rural financial system,Rich rural finance main body,But financial institutions function view think less,Lead to the weakness of the policy finance obvious characteristics.At the same time,The development of agricultural insurance has been in the lag phase,Due to the risk trait of agriculture and agricultural industry profitability is not high,Commercial insurance does not wish to enter,Makes the agricultural insurance in the long term"Needs co., LTD./supply"The state of the.In recent years,A lot of agriculture insurance began to take the state pays insured,Such as the"Can be numerous sows"Such as insurance coverage,But most of the agricultural insurance coverage is not pilot promotion,Insurance system lags behind, leading to insufficient financial support and motivation,The risk of subsequent dispersion and compensation mechanism is not perfect,Adding to the weaker sex.

　　促进农村资本要素的优化配置的建议

Promote the optimized allocation of rural capital elements of the proposal

　　纵观改革开放以来的农村资本要素配置的变迁路径，从单一的储蓄动员到多元化和竞争化的农村金融格局建立，农村金融市场体系不断完善。在统筹城乡发展、大力推进城镇化建设的背景下，要发展农村经济，还需要在引导关键性要素流向农村上下功夫。

Throughout that since China's reform and opening up the rural capital configuration change path,Savings from a single mobilization to the diversified and competitive rural financial structure,Perfecting rural financial market system.In urban and rural development as a whole/Under the background of vigorously promoting urbanization construction,To develop the rural economy,Also need to guide the key elements to rural areas.

　　建立健全农村金融服务体系，增加有效供给。进一步建立健全适应“三农”需要的，多层次、广覆盖、可持续的农村金融体系。农业银行应坚持为农服务的方向，稳定和发展农村服务网络，全面深化内部各项改革，落实责任，充分利用在县域的资金、网络和专业等方面的优势，更好地为“三农”和县域经济服务；完善农村政策性金融，拓展农业发展银行支农领域，加大各类政策性金融对农业开发和农村基础设施建设中长期信贷支持；要继续深化农村信用社改革，加快推进股份制改造，完善法人治理结构，发挥好为农民服务的主力军作用。同时，要放宽农村金融机构准入，稳步开放农村金融市场，规范发展多种形式的新型农村金融机构和以服务农村地区为主的地区性中小银行。鼓励发展适合农村特点和需要的各种微型金融服务，允许农村小型金融组织从金融机构融入资金，允许有条件的农民专业合作社开展信用合作。加快发展农村保险事业，健全政策性农业保险制度，加快建立农业再保险和巨灾风险分散机制。加快建立全国范围的政策性农业保险网络和农业保险基金。要积极支持专业性、商业性保险机构的发展，鼓励引导商业性保险机构到农村地区设立机构、开展业务、开发适合农村需求的各类保险产品，探索建立多层次、多主体的农业保险网络。

Establish and improve rural financial service system,To increase effective supply.To further establish and improve the adaptation"Agriculture, rural areas and farmers"The need to,multi-level/A broad/Sustainable rural financial system.Agricultural bank should stick to the direction of serving farmers,Stability and development of the rural service network,Deepening internal reforms in an all-round way,To carry out the responsibility,Make full use of the county/Network and professional advantages,For the better"Agriculture, rural areas and farmers"And the county economy service;Perfect rural policy finance,Agricultural development bank of agriculture field,More kinds of policy-based finance for agricultural development and rural infrastructure construction of medium and long-term credit support;To continue to deepen reform of rural credit cooperatives,Accelerate the shareholding system reform,Perfect the corporate governance,Better services for farmers should play the role of main force.At the same time,To ease access to rural financial institutions,Steadily open the rural financial market,Specifications to develop various forms of the new type of rural financial institutions and to serve the rural areas of regional small and medium-sized Banks.Encourages the development suited to rural characteristics and needs of a variety of microfinance services,Allow rural small financial institutions into the capital from financial institutions,Allow conditional farmer professional cooperatives credit cooperation.Speed up the development of rural insurance business,A sound system of policy-oriented agricultural insurance,To speed up the develop an agricultural reinsurance system and a catastrophe risk dispersed mechanism.We will accelerate the establishment of a nationwide network of policy-related agricultural insurance and agricultural insurance funds.To actively support professional/The development of commercial insurance institutions,Encourage guide commercial insurance institutions to set up institutions in rural areas/To do business/Suitable for the development of the rural demand for all kinds of insurance products,Explore to establish multi-level/Multi-agent network of agricultural insurance.

　　鼓励产品和服务创新，提升农村金融服务水平。大力培育和发展县域担保、评估、公证等中介机构，切实解决县域担保难问题；要完善农户和中小企业的抵押、质押机制，建立农村担保组织，分散农业经营中的风险。鼓励金融机构与相关机构加强合作，运用联保、担保基金和风险保证金等联合增信方式，积极探索发展联合信用贷款。探索发展符合农村特点和实际的金融工具，提高农村信贷资源的配置效率，分散农业信贷风险，进一步创新抵押贷款方式，运用项目贷款和银团贷款等加大对农网改造、农田水利、农村路网、通讯设施等农村基础设施建设的信贷投放。针对农村金融需求领域拓宽、项目增加与结构升级的客观要求，积极优化信贷结构，创新服务产品，探索开展活体畜禽、栏舍抵（质）押贷款和林权、农村土地承包经营权、宅基地使用权等农村“三权”抵押贷款业务，不断拓展金融供给的多样性。

Encourage innovative products and services,Promote rural financial service level.Vigorously cultivating and developing county guarantees/assessment/Notary intermediary institutions,County guarantees and solve difficult problems;To consummate the collateral for the farmers and small and medium-sized enterprises/Hypothecation mechanism,The establishment of rural guarantee organization,The risk of a scattered agricultural operation.Encourage financial institutions to strengthen cooperation with relevant institutions,Use of the coinsurance/And joint credit guarantee fund and risk margin methods,Actively explore the development of joint credit.To explore development with rural characteristics and practical financial instruments,Improve the efficiency of rural credit resource allocation,Scattered agricultural credit risk,Further innovation of mortgage loan,Using the project loan and syndicated loans increased to retrofit/Irrigation and water conservancy/Rural road network/Communication facilities such as supply of credit for the construction of rural infrastructure.To expand rural financial demand areas/The objective requirement of the project increase and structure upgrade,Optimize the credit structure,Innovation service products,Exploration of livestock and poultry in vivo/Bar up to(mass)Loans and forest right/Right to the contracted management of rural land/Such as the rural housing land use right"The three powers"The mortgage business,Continue to expand the diversity of financial supply.

　　不断优化资源配置手段，建立农村资金回流机制。针对农村金融资金外流严重的现象，增加农村信贷资金投入，形成农村资金回流和良性循环机制。通过农村金融组织创新和运行机制创新确保农村资金不外流，甚至吸引外部资金回流农村。针对农业投入少、农民贷款难的情况，积极发挥财税政策的杠杆作用，引导和改善农村金融资源配置，逐步建立市场主导与政府扶持相结合、财税政策与金融政策相结合的支农长效机制。加大对农村金融政策支持力度，引导更多信贷资金投向农村。同时，鼓励各类金融机构扩大农村地区经营，将更多资金用于支持当地经济社会发展，县域内金融机构要将新吸收的存款主要用于当地发放贷款，支持当地农业增产、农民增收和农村经济发展。发挥金融业支持农村经济发展的资金主渠道作用，监管部门要鼓励金融机构向“三农”倾斜，引导信贷资金支持“三农”业务，强化“三农”服务功能，并要继续着力于培育分工管理、投资多元、功能完善、服务高效的农村金融机构。

Constantly optimize the allocation of resources,The establishment of rural capital flow mechanism.In view of the rural finance capital outflow phenomenon seriously,Increase rural credit funds,Formation of rural capital return and the virtuous circle mechanism.Through the rural financial organization innovation and mechanism innovation to ensure that the rural fund outflow,Even attract outside capital backflow rural.In view of less input to agriculture/Farmers loans difficult situation,Actively play the leverage of the fiscal and taxation policy,Guide and improve the rural financial resources allocation,Gradually establish a market leading with government support/The combination of fiscal and taxation policy and financial policy support agriculture long-term mechanism.Intensify policy support for rural finance,Guide more credit funds into rural areas.At the same time,Encourage all kinds of financial institutions to expand business in rural areas,More money to support the local economic and social development,Local financial institutions to absorb new deposits mainly for local loans,Support the local agricultural production/Increasing farmers' income and rural economic development.Play a role of main channel of financial support for rural economic development funds,To encourage financial institutions to the regulatory department"Agriculture, rural areas and farmers"tilt,Guide the credit funds support"Agriculture, rural areas and farmers"The business,Strengthen the"Agriculture, rural areas and farmers"The service function,And want to continue cultivating the division of labor management/Investment multivariate/Fully functional/Service efficiency of rural financial institutions.

　　完善农村金融的竞争机制，优化农村金融发展环境。继续引导、鼓励、扶持新型农村金融机构，通过金融主体的不断增加逐步形成竞争的金融环境，通过适度竞争推动农村金融的发展。新型农村金融机构的发展，有助于形成有利于农村金融、经济发展有序的新型金融生态。同时，加快推进农村地区金融服务网点和基础设施建设，着力消除支付服务空白乡镇，积极推动银行卡、支票、汇票等非现金支付工具在农村的普及应用。继续推进农村信用体系建设，培育诚实守信的社会信用文化，促进农村金融生态环境改善，为农村金融服务范围的不断扩大、服务质量和服务效率的不断提高创造良好条件。积极推进县域、乡村信用体系建设，为县域金融生态的改善营造良好的社会信用环境。逐步建立健全农村企业和个人征信体系，提高借贷双方信息对称性，防范信用风险。普及信用知识，加强诚信教育，增强农民信用意识，营造有利于金融机构健康发展的良好信用环境。

Perfect rural financial competition mechanism,Optimize the environment of the rural financial development.Continue to lead/To encourage/To support the new rural financial institutions,Through increasing financial main body gradually formed competition of financial environment,Through moderate competition to promote the development of rural finance.The development of a new type of rural financial institutions,Helps to form is conducive to rural finance/New financial ecological economic development orderly.At the same time,Accelerate the rural financial service network and infrastructure construction,Payment services focus on eliminating blank township,Actively promote bank CARDS/A cheque/Non-cash payment instruments such as draft to popularize and apply in the country.Continue to push forward the rural credit system construction,To foster honest social credit culture,Promote rural financial ecological environment improvement,For the expansion of the scope of rural financial services/Constantly improve the service quality and service efficiency to create a good condition.Actively promote the county/The rural credit system construction,For the improvement of county financial ecosystem to create a good social credit environment.Corporate and personal credit registry system, gradually establish and improve the rural,Improve the borrowing information symmetry on both sides,To guard against credit risk.Instruction in the credit,Strengthen the integrity education,Strengthen the consciousness of farmers' credit,Conducive to the healthy development of financial institutions, a good credit environment.

　　（作者单位：中国人民银行兰州中心支行）

(The author unit:Lanzhou central sub-branch of the people's bank of China)