Study On The Policy Performance Of Financial Support For Agriculture Special Funds

China has consecutively published No.l central document with the theme of "three dimensional rural issues" for 11 years and different levels of ministries, commissions and government have published policies to strengthen agriculture and benefit farmers in succession. As an important policy to benefit farmers, how can we evaluate performance of the special fiscal fund policy? What are the factors influencing the performance? Current researches mainly evaluate the special fiscal results from the reasonability, legitimacy, economics, efficiency and effectiveness and analyze the performance factors from system, economy, management and politics. In fact, as an important public financial policy, it is the essential stipulation to realize the public value of the special fund and it is also the core of performance evaluation. but evaluation on its results ignore critical elements including necessity and reasonability for establishment of the special policies; and its performance will necessarily be restricted by policy process, whose essence is interaction among policy actors. Action of policy actors constitutes the structure of special fund policy. Its structure will determine its functions and effective performance of the functions will directly influence performance of special fund policy. Above point is what is ignored in current researches.Based on current researches, this paper constructs special fund policy performance evaluation indicator system framework. Taking the example of special subsidy policy in during production of rice in Zhejiang province, the paper evaluates its policy performance, discusses policy performance influencing mechanism from perspective of structural functions and puts forward countermeasures and suggestions to improve policy performance.(1) Special fund policy performance evaluation framework concerning agriculture. Definition of evaluation of special funds. Performance of policy preparation, implementation, output and monitoring. On the basis of current literature investigation and expert interviews, it prepares initial evaluation indicator, verifies evaluation credibility and effectiveness of evaluation indicators and confirms the final evaluation indicators. Problem definition measurement indicator is the demand, policy-making has four grade-one measuring indicators including the necessity, reasonability, maneuverability and participation; policy execution has five grade-one measurement indicators of efficiency, adequacy, response, influence and coordination; policy output has three grade-one measurement indicators of effect, satisfaction and fairness; policy monitoring includes two grade-one measurement indicators of flexibility and participation. It will be further resolved into 22 measurement indicators on the basis of grade-one measurement indicators.(2) Result on evaluation of performance of special policy in production of rice. Through deep investigation on 344 farmers in 28 rice scale production main bodies, 12 administrative villages and 44 relevant departments in 3 counties (cities), it has following result on evaluation of performance:problem definition phase:there is great difference in policy demands for rice-growing main bodies,88.68% of the interviewees show indifference to subsidy policy, and 100% of the rice scale production main bodies say they need current special subsidy policy but the subsidies are not enough. Policy-making phase:92.3% of the policies do not have unique functions; more than 90% of the policies have impractical target contents; 82.4% of the policies have unreasonable contents and subsidy subjects; 100% of the policies have implicit targets; 53% of the policies do not have maneuverability; and 100% of the interviewees do not take part in policy making. Policy-implementation phase:the administrative efficiency is low, more than 60% of the special subsidy policies have complex procedures; there is great lack of human resources at the bottom and insufficient financial support in underdeveloped areas; more than 95% of the interviewees said they do not get response from the policies and 96% of the cooperative organizations said difficulties in fund raising, loans and land transferring have not been replied and settled.96% of rice scale production main bodies know at least 8 subsidy policies and more than 70% of the individual rice growers are not clear what subsidies they have got; government departments in upper level and lower level have asymmetric information and they have disorder management in data of rice subsidy. Policy output phase:17 special subsidy policies do not increase income of farmers and improve their activity in rice growing; 94% of the specific policies do not realize its targets; 57.64% of the interviewees said they had no feelings on subsidy policies; 27.78% of the interviewees said they were satisfied with the results of the subsidies; scale production main bodies have got much more subsidies than individual rice growers, at least more than 70% of the profits come from the subsidies and subsidies the individual rice growers got are less than 72 yuan per acre; special subsidy policies have rigid uniformity and do not distribute according to different regions. Policy monitoring phase:there is not enough flexibility, deviations in execution of some policies cannot be timely adjusted; low participation of external supervision.100% of the interviewees do not care about implementation of special policies, and there is weak power in supervision of NPC, CPPCC and the third party.(3) Analysis on factors influencing performance of special fund policies concerning agriculture from the perspective of structural functions:problem definition structure: farmers have little activity in expressing benefits. Elite agency cannot effectively policy demands of most farmers, which lead to misplacement of policy supply and demands. Policy-making structure:decision-making structure of the special policies is improper, there is insufficient effective interaction between decision-making main bodies, decision-making main bodies outside the party and government cannot effectively perform their duties; budgetary systems on the basis of department intensify special subsidy policy, which lead to different malignant phenomena including chaos, inappropriate establishment, unclear targets, unreasonable subsidy subjects and little maneuverability. Policy-implementation structure:under official implementation structure of "two rails including party and government" and "integrations of departments and regions at different levels", Main bodies in policy implementation have unclear functions, responsibilities, complex subsidy procedures and low efficiency; and unofficial implementation structure guided by relations influence fairness of the distribution of special funds especially for non-GSP (generalized system of preferences) subsidy policies. Policy-monitoring structure: special fund policy has bad supervision structure, departments have unclear authority and responsibilities; functions of external supervision main bodies are not effectively developed; performance evaluation of neglecting "policy" in internal supervision has intensified low performance of special fund policies.(4) Strategies to improve performance of special policies. Problem definition phase: optimize benefit expression mechanism of the farmers and reinforce the information search ability of the government. Policy-making phase:improve decision making power structure and special fund budgetary system; fully discuss reasonability of the establishment of special policies; optimize special subsidy policy target system and make clear specific policy targets:adjust special expenditure structure, reduce non-GSP expenditure and increase GSP direct subsidies; reduce subsidies in middle joints and directly subsidize the farmers or land. Policy-implementation phase: Making clear relations between party, government and national authorities and get their legal responsibilities implemented; improve power allocation system of policy implementation main bodies, use the legal forms to make clear authorities of government and department in upper and lower level; gradually promote consolidation of scattered second grade institutes in implementation of special subsidy policies, simplify operation procedures of various subsidy policies, establish information management system for modern agriculture and uniformly manage basic data of the subsidies. Policy-monitoring phase:develop supervision of multi-main bodies and optimize appraisal dimension of the special subsidy policies.