Based on the current situation of China's economic development, this paper tries to elaborate the policies and measures that China should take to ensure the stable economic development from the perspe

Based on the current situation of China's economic development, this paper tries to elaborate the policies and measures that China should take to ensure the stable economic development from the perspective of optimizing the financial expenditure structure. 1. Intensify reform to change the situation that the state finances are too involved in distribution. China's existing financial supply scope and expenditure distribution structure developed from the large financial and large supply system in the early days of the founding of the People's Republic of China, and were based on the traditional planned economic system. Its biggest feature is that the coverage of the country is too large, and the scope of fiscal expenditure is too wide, covering almost all aspects of production and consumption in the whole society. Some problems that should have been solved by the market have been included in the scope of fiscal distribution. The distribution of this supply system lags behind the changes in the current economic distribution pattern. In particular, it needs to be pointed out that although the country adds more financial resources every year and the pressure of increasing financial expenditure is considerable, the adjustment of economic structure, the establishment of social security system and the development of science and technology education all need financial support, which is a major issue related to the coordinated development of the whole social economy. However, if the current fiscal expenditure distribution pattern is not adjusted and can not be reduced, then the finance can not bear and meet the above-mentioned government's key expenditure requirements, and it will be empty talk to improve and optimize the fiscal expenditure structure. Therefore, changing the excessive distribution of the country and separating the part that should be borne by the market and society from the financial expenditure are the main problems to be solved in correctly defining the scope of financial expenditure and strengthening the governance of financial expenditure under the condition of market economy, and are also important conditions for optimizing the financial distribution structure, strengthening the development of key construction undertakings and improving financial operation. Three problems should be solved in this respect: first, the state finance should gradually withdraw its investment in competitive fields. According to the requirements of market economy, the basic policy orientation of financial investment is to do something, that is, to scientifically define the scope of financial investment, change the disadvantages of excessive financial investment, gradually reduce and withdraw from investment in competitive fields, and concentrate financial resources to ensure the focus of national investment. As for the financial input in the competitive field, this is a very complicated policy and theoretical issue, which has different definitions in different countries and different stages of development. China is a developing country, which is in the period of system transition. At present and in the future, financial investment can only be withdrawn from general competitive areas, while government and government investment in key competitive areas such as pillar industries and basic industries cannot be withdrawn prematurely. We should adopt supportive policies to promote the upgrading of industrial structure and technical structure. The second is to clean up and standardize the scope of financial funds supply of public institutions. Under the condition of socialist market economy, all public institutions do not have the nature of public demand, and it is impossible and should not be carried out by the financial department. Institutions should introduce market mechanism and adopt different financial management methods according to different types. Generally speaking, institutions can be divided into three categories according to the nature of services: public welfare, quasi-public welfare and business. Among them: public welfare institutions, such as basic education, basic scientific research, libraries, family planning and other institutions, whose activities belong to typical social needs should be guaranteed by finance. Quasi-public welfare institutions, such as higher education, vocational education, radio and television, medical care, etc. Providing services between social needs and personal needs is necessary for the existence and development of modern society and basically belongs to the supply scope of government public budget. However, those who enjoy the service bear part of the cost, so they can be given financial support. Generally speaking, the services provided by operating institutions, such as developing scientific research institutions, professional sports events, art performance groups, art performance venues and social intermediary institutions, cannot meet the needs of society and should be decoupled from financial supply and gradually move towards the market. In short, through the above reforms, the financial supply scope of public institutions will be gradually standardized, which is also conducive to better playing the role of finance in the socialist market economy. The third is to reform the loss subsidy system of state-owned enterprises. At present, the dominant position of state-owned enterprises in the market has been established, but the mechanism of self-financing and survival of the fittest has not yet been fully formed, and finance still needs to make up for the loss subsidies of enterprises. In the future, the loss subsidies for state-owned enterprises should be differentiated. Prices and charges of some unconventional industries (such as water, electricity, urban transportation, environmental protection, etc.). ) still need state management, some state-owned enterprises have assumed the extraordinary responsibility of the government, and the resulting losses should still be subsidized by the government. State-owned enterprises in most other competitive fields should cancel their loss subsidies with the advancement of enterprise reform. Second, with the advancement of market economy, finance needs to further strengthen social public expenditure. Social public expenditure covers a wide range, including science and technology, education, health, social security and environmental protection. It represents the common interests and long-term interests of society, and it is also a very important expenditure in the national fiscal expenditure structure under the conditions of modern market economy. From today's world, with the development of economy and the growth of national financial resources, western industrial countries have generally strengthened social public expenditure, and the proportion of social public expenditure in total government expenditure has been increasing, which has played a very important role in regulating social and economic operation and promoting economic development. However, in the past, China's long-term budget arrangement was not satisfactory. Under the traditional system, although the proportion of national financial resources is high, most of the financial resources are allocated to economic construction, the proportion of social public expenditure is low, and more debts are used for social development. Since the reform, with the large dispersion of national financial resources, it has not only led to a sharp decline in financial input, but also made it difficult to ensure the lowest public expenditure demand. If this situation continues, it will eventually have a great impact and restriction on economic development, and the coordinated development of social economy will also be empty talk. Therefore, from a macro perspective, China's fiscal expenditure policy in the future must effectively strengthen social public expenditure. Of course, it should be noted that China, as a developing country, is at different stages of development compared with western industrial countries, and there is a clear gap between its economic strength and financial strength. Therefore, there is still a problem of strengthening social public expenditure in the future, which cannot exceed the affordability of national strength. 1. Education investment belongs to social expenditure and is an important part of fiscal expenditure in any country. The state finance should continue to focus on supporting education and take effective measures to further increase the proportion of education funds in fiscal expenditure. At present, the financial investment in education accounts for about 80% of the total investment in education in China. Obviously, increasing the national financial investment in education is the key to increase the total investment in education. To this end, we must first ensure that the education expenditure grows steadily within the existing budget. Financial departments at all levels should conscientiously implement the education law and increase investment in education with the development of economy and the improvement of fiscal revenue. Another important idea is to change the traditional practice of the state finance covering all education funds and mobilize all social forces to take the road of raising funds through multiple channels. Practice has proved that the educational development model suitable for China's national conditions is that the government should give priority to running schools, raise funds through multiple channels and run schools in various forms. First of all, we should study and establish a standardized education cost compensation mechanism. For nine-year compulsory education, the state should focus on it, and the financial funds should be tilted to this aspect first. For non-compulsory education, such as higher education and vocational education. There is no doubt that the state should give support, but according to foreign experience, students should be charged reasonably, which is a major reform measure to change the situation that the state covers too many students and broaden the sources of education funds. We should pay attention to two problems. First, the fees should not be too high, and should be adapted to the actual income level of residents according to the actual situation in China. The second is to further improve the system of scholarships, student loans and tuition remission in colleges and universities, and improve the mechanism of solving difficulties for college students. We should continue to encourage the society to raise funds and donate money for education. Among them, we should pay attention to policy guidance and standardization, strictly implement the examination and approval procedures, standardize the donation and fund-raising behavior, and set up educational foundations and other organizations to uniformly manage the educational donations of social groups and individuals at home and abroad, and guide the use direction of social fundraising and donations. In addition, the investment structure of national finance in education needs to be strategically adjusted, and a long-term guarantee mechanism for rural compulsory education funds should be established and improved. Specifically, it is necessary to deepen the reform of the rural compulsory education funds guarantee mechanism, and gradually exempt farmers' children from the miscellaneous fees and textbook fees paid in the compulsory education stage, subsidize the living expenses of rural poor family boarders, and fully incorporate the rural compulsory education funds into the financial guarantee scope in accordance with the principle of "clarifying the responsibilities at all levels, increasing financial input, improving the level of protection, and organizing the implementation step by step". Improve the level of public funds for rural primary and secondary schools, establish a long-term mechanism for the maintenance and transformation of rural primary and secondary schools, and further consolidate and improve the existing education wage guarantee mechanism; The center focuses on supporting the central and western regions, taking into account the difficult areas in the east, establishing a long-term guarantee mechanism for the central and local governments to bear funds in proportion, and promoting education equity. 2. Social security is an overall issue related to China's reform, development and social stability, which needs to be included in the national fiscal policy planning. First, adjust the distribution structure of fiscal expenditure and increase fiscal social security expenditure. In the medium and long term, with the expansion of the elderly population and the unemployed population, the demand for social security funds will show a rapid growth trend, which will undoubtedly have a far-reaching impact on the operation and distribution pattern of fiscal revenue and expenditure. Therefore, according to the requirements of public finance, finance must further adjust the current expenditure distribution structure, withdraw financial funds from the general competitive field as soon as possible, correspondingly reduce administrative expenses and general operating expenses, and truly regard social security expenditure as an important part of the fiscal budget. From the perspective of foreign developed market economy countries, the social security system has developed rapidly after the war, especially since the 1960s, and has been widely implemented and strengthened, becoming a very important part of the government's fiscal expenditure. The proportion of social security expenditure in the total fiscal expenditure is on the rise, reaching about 40% at present. Compared with western developed countries, there is a big gap between China's economic base and financial capacity, and China is in the period of system transition, and the contradiction between fiscal revenue and expenditure is very prominent. Therefore, the proportion of social security expenditure in China cannot reach the high level of western countries. However, from the long-term trend, the rising proportion of social security expenditure has increasingly become a basic law and international experience of financial operation and development, which gives us inspiration. Therefore, the next step of China's finance is to strengthen the social security expenditure by adjusting the distribution structure, and strive to increase it from the current 12% to 15% by the end of the 11th Five-Year Plan, which is not only an important strategic consideration for China's national conditions, but also a useful reference for international experience. The second is to clarify the key points of fiscal and social security policies. In the future, the reform of urban social security should make efforts in expanding the coverage of social security, making personal accounts of social endowment insurance and strengthening the management of social security surplus funds. The rural social security reform should strive to make breakthroughs in establishing the rural minimum living security system, the new rural cooperative medical system and the rural family planning reward and assistance system. The third is to establish a social security budget. In the future, China's financial budget will be divided into public revenue and expenditure budget, state-owned capital operation budget and social security budget. The core problem to be solved in the social security budget is to change the current situation of decentralized governance of social security funds, and provide stable financial guarantee for the development of social security through social security budget. 3. Take effective measures to increase support for scientific and technological progress and development. Nowadays, all countries in the world attach great importance to the development of science and technology, constantly adjust their science and technology policies and development strategies, and promote the development of science and technology. According to statistics, the total investment in R&D in the United States ranks first in the world. In recent years, its investment situation is:1993137.3 billion USD, 1994 173 billion USD,178.6 billion USD, 65,438 USD. Judging from the ratio of total R&D investment to GDP, some major industrialized countries all exceed 2%, such as the United States 2.45%, Japan 2.96%, Germany 2.27%, France 2.35%, and Britain195,2.19%. Even some newly industrialized countries and developing countries attach great importance to this kind of investment. China is a developing country. In order to accelerate the development of social productive forces, enhance the country's comprehensive economic strength and realize the strategic goal of modernization, measures must be taken in the future to effectively strengthen investment in science and technology and truly play the leading role of scientific and technological progress in economic development. First of all, we should continue to play the role of finance as the main channel for scientific research investment. Financial investment in science and technology plays a leading role in the implementation of major national science and technology development plans, the operation of science and technology projects and the development of key scientific research institutes, which directly or indirectly affects industrial development and social progress, and the state must pay attention to it. From the future, the key points of the national financial investment in science and technology should include: First, continue to increase the capital investment in major national scientific research plans such as the special investment of the Science Fund, the "863" high technology, the climbing plan and the knowledge innovation project, support the construction of national key basic research units and basic scientific research bases that transcend departmental boundaries and concentrate on discipline advantages, and create conditions for China to give priority to the development of basic research and high-tech research. The second is to implement the policy of focusing on agricultural science and technology investment and improve the situation that agricultural scientific research conditions are generally backward as soon as possible. Third, give priority to meeting the needs of population, resources and environment, medicine and health and information, and promote the development of key areas of social development. Secondly, the financial department should use the guiding role of policies to urge enterprises to establish a technological innovation mechanism, actively increase funds for technological development by raising funds for scientific and technological research and transformation of scientific and technological achievements, and promote scientific and technological progress of enterprises in a planned and focused manner. In addition, national policy banks can set up special loans to support the transformation of major scientific and technological achievements and the development of high-tech industries. Finance should also cooperate with the financial sector to formulate a discount policy for science and technology loans, so that scientific research units can win the support of national science and technology loans in time. Third, efforts should be made to strengthen financial input in important industries and fields of the country and enhance the long-term development potential of the national economy. In the process of adjusting China's future fiscal expenditure structure, it is not enough to pay attention only to social public expenditure, but also to the investment of government finance in economic construction. Modern economic growth theory not only reveals the internal relationship between investment and economic growth, but also profoundly discusses the characteristics and functions of government investment in the whole social investment. First of all, the government is the main body of macro-control. It can evaluate and arrange its own investment from the perspective of social benefits and social costs, rather than taking profit as the main purpose. The completion of government investment projects such as social infrastructure can greatly improve the overall efficiency of the national economy. Second, the government has abundant capital, and the sources of funds are generally free, so it can invest in large-scale projects and long-term projects. Third, the government can engage in investments with good social benefits and average economic benefits. This shows that government investment has obviously different characteristics compared with non-government investment, and government investment is an important force to promote economic development. China is still a country with relatively backward productive forces, and the task of industrialization is very arduous. On the one hand, China's modernization has a low starting point and a heavy burden, on the other hand, it is the rapid development of scientific and technological reform in the world today. It is almost impossible to realize the industrialization task and the "three-step" strategic goal in a short time without unified industrialization strategic planning and strong government investment. International experience shows that under the modern market economy system, the government's intervention in the economy is increasing day by day, and financial investment is an important means to realize the national policy intention and macro-control, which is irreplaceable by bank credit policy. From the reality of our country, in the economic reform, with the change of national income distribution pattern and the corresponding expansion of bank credit funds, it is necessary for banks to participate in investment appropriately. However, the excessive expansion of bank investment loans or the increasing financialization of bank credit funds will not only bring hidden dangers to macroeconomic operation, but also aggravate redundant construction and structural imbalance, and the share of bank bad debts will rise sharply, which will also hinder the deepening of financial system reform in the long run. Therefore, in the future, the macro-control of the country must change the tendency of over-reliance on banks, increase financial investment, and give full play to the important role of fiscal policy in economic development and structural adjustment. In the future, financial investment should change the past practice of "spreading pepper noodles" and concentrate financial resources on the most urgent aspects of national economic development and national macro-control. We believe that the direction and focus of medium and long-term financial investment mainly include the following aspects: First, support the construction of social public infrastructure. Infrastructure is an important part of the national economy, an indispensable material carrier and basic element of human production and life, and has an important industrial position and strategic position in the process of national economic development. International experience shows that social public infrastructure is the foundation of industrialization, especially in the early stage of industrialization, basic industries including infrastructure are the main driving force to promote rapid and sustained economic growth, although the international economic environment and scientific and technological progress faced by China have changed greatly compared with the early stage of industrialization in developed countries, even though the diversification of consumption structure in China is faster than that in developed countries. However, this will only increase the difficulty and urgency of rationalizing China's industrial structure, and require China's national economy to establish an overweight industrial base and social infrastructure as soon as possible to meet the requirements of diversified consumption, instead of skipping the tasks that must be completed in the early stage of industrialization. Therefore, vigorously developing social infrastructure, such as railway and highway network construction, urbanization and urban infrastructure construction, is still an insurmountable stage of China's economic development. Strengthening national financial investment in infrastructure construction can not only effectively stimulate domestic demand and promote rapid economic development, but also avoid repeated construction, which is conducive to adjusting and improving investment and economic structure. Moreover, the investment risk is small, and the long-term economic and social benefits are good. It can find a way out for idle funds, create more employment opportunities for laid-off workers and rural surplus labor, increase the consumption of urban and rural residents, and realize a virtuous circle and long-term stable development of the national economy. The World Bank's Development Research Report 1994-Providing Infrastructure for Development profoundly discusses the relationship between infrastructure and economic development, pointing out that infrastructure and economic output are growing synchronously-if the infrastructure stock increases 1%, GDP will increase 1%, which is the case in all countries. The report even thinks that whether the infrastructure is complete or not is helpful to determine the success of one country and the failure of another, and plays an important role in promoting production diversification, expanding trade, solving the problem of population growth, alleviating poverty and improving environmental conditions. Therefore, drawing lessons from international experience, especially considering the reality that China's domestic demand is insufficient and social infrastructure is generally backward, it is undoubtedly the right choice for the state finance to take measures to increase infrastructure investment. The second is to strengthen the basic position of agriculture. Agriculture is the basic industry of the national economy and the weak industry in the market competition. Most countries in the world regard agriculture as the object of government protection, and finance is an important means for the government to protect agriculture. China's modernization must go through agriculture. In order to achieve the strategic goal of agricultural development in the future and alleviate the contradiction between supply and demand of agricultural products, it is necessary to strengthen the government's protection and support for agriculture and effectively solve the problem of agricultural input, including finance. The focus of financial investment in agriculture is to support those projects with high risks and low economic benefits, which have protective, developmental or demonstration effects on agricultural development, such as large and medium-sized agricultural infrastructure, agricultural scientific research and new technology promotion, and ecological environment protection. This is unbearable for other agricultural investors, and it is also the focus of government finance to protect agriculture. In addition, from the experience of market economy countries and the standpoint of central and local governments, governments at all levels should focus on financial investment in agriculture. Specifically, the scope of financial investment in agriculture at all levels is divided according to the size of the scope of benefits and whether the agricultural production, construction and career development projects undertaken by the government have external effects, which fully embodies the principle that whoever benefits pays. As far as the division of constructive and institutional investment in agriculture is concerned, it should be roughly as follows: the central government should mainly bear the expenditures that are related to the overall economic development of the whole country, belong to the whole country or cross-regions, and cannot be borne by local governments or are not suitable for local governments, such as the management of major rivers, large-scale ecological agriculture protection projects, key agricultural science and technology development with overall and directional characteristics, and the construction of large-scale grain and cotton bases; The investment mastered by provincial finance should mainly include provincial and inter-city water conservancy projects, provincial agricultural and forestry water conservancy development projects, and the popularization and application of major scientific and technological achievements; On the basis of undertaking the construction and maintenance of agricultural engineering facilities in the region, the municipal, prefectural and county finances will focus on developing high-quality and efficient agriculture, socialized service systems and popularizing advanced and applicable agricultural technologies. Fourth, innovating expenditure management methods and reducing administrative operation costs are hot issues of concern to all sectors of society at present. At present, the administrative operation cost is high. Although there are factors such as the change of calculation caliber, the promotion of wage growth and the expansion of information equipment, the lack of system and governance is still an important reason that cannot be ignored. Therefore, deepening expenditure reform and innovating governance methods will surely become an important way to reduce administrative costs and have far-reaching significance for promoting the construction of an economical government. To sum up, starting from the tasks faced by China's economic development and system transition in the future, the direction and focus of medium and long-term fiscal expenditure adjustment and optimization, on the one hand, is to change the government's fiscal distribution pattern and strengthen social public expenditure and economic construction investment. Only in this way can we give full play to the regulatory role of finance in the national economy and promote the coordinated development of China's social economy.