二十國集團深化結構性改革議程
G20 Enhanced Structural...

一、前言Introduction結構性改革是二十國集團（G20）的一項重點議題，也是G20實現強勁、可持續、平衡增長目標的關鍵之一。結構性改革是長期增長的重要動力，特別是在與宏觀經濟政策一併使用時，能夠提振信心、促進需求和增長。G20財長和央行行長承諾「各自以及共同使用所有政策工具，包括貨幣、財政和結構性改革政策」以「促進增長，增強信心，維護和增進復甦」。Structural reform has been a priority for the G20 and a key part to achieving the G20’s goal of strong, sustainable and balanced growth. It is an important driver of growth over the long term, and can support confidence, demand and growth in the short term especially when used in conjunction with macroeconomic policies. G20 Finance Ministers and Central Bank Governors are committed to using "all policy tools – monetary, fiscal and structural – individually and collectively" to "strengthen growth ... foster confidence and preserve and strengthen the recovery".考慮到結構性改革的關鍵作用，確保成員富有雄心地、有針對性且有效地推進改革十分重要。這也是深化結構性改革議程並作為2016年G20一項重點議題的動因。在此背景下，G20財長和央行行長「承諾進一步加強結構性改革議程，包括提出一系列改革的優先領域和指導原則，為G20各成員推進結構性改革提供參考，並將建立一套指標體系，在考慮國情多樣性的同時，更好地評估和監測各成員結構性改革進展及其是否足以應對結構性挑戰。這一強化的結構性改革議程將納入強勁、可持續、平衡增長框架下的現有工作。」Given the critical role played by structural reform, it is important to ensure that members』 efforts in this area are ambitious, relevant, focused and effective. This underlies the motivation for the development of an enhanced structural reform agenda, which is a priority for the G20 in 2016. In this context,Finance Ministers and Central Bank Governors "committed to further enhancing the structural reform agenda, including by developing a set of priorities and guiding principles as a reference for G20 reform efforts, as well as by creating an indicator system to further improve assessing and monitoring of the progress of structural reforms and their adequacy to address structural challenges, taking into account the diversity of country circumstances. This enhanced structural reform agenda will be incorporated into the existing work stream under the Framework for Strong, Sustainable and Balanced Growth".本文將詳細介紹今年由G20強勁、可持續、平衡增長框架工作組制定的深化結構性改革議程的具體內容。This paper sets out the details of the G20's enhanced structural reform agenda as developed this year by the G20 Framework Working Group for Strong, Sustainable and Balanced Growth.二、優先領域PrioritiesG20確定的九大結構性改革優先領域如下：The nine areas identified as structural reform priorities for the G20 are:1. 促進貿易和投資開放-- Promoting trade and investment openness2. 推進勞動力市場改革及獲取教育與技能-- Advancing labour market reform, educational attainment and skills3. 鼓勵創新-- Encouraging innovation4. 改善基礎設施-- Improving infrastructure5. 促進財政改革-- Promoting fiscal reform6. 促進競爭並改善商業環境-- Promoting competition and an enabling environment7. 改善並強化金融體系-- Improving and strengthening the financial system8. 增強環境可持續性-- Enhancing environmental sustainability9. 促進包容性增長-- Promoting inclusive growth值得注意的是，各國結構性改革的優先領域各不相同，應關注與自身改革聯繫最緊密的優先領域。正如國際貨幣基金組織（IMF）在題為《結構性改革框架：優先領域和指導原則》的文件中提到的，要確定結構性改革的優先領域，應首先評估一國結構性政策缺口，以便找出哪些改革最能促進增長。結構性改革的具體選擇和設計必須考慮該國的宏觀經濟環境和優先重點，包括收入水平、所處的經濟周期以及政策空間。It should be noted that the specific priority areas making up the structural reform agenda will differ from country to country, and countries will focus on those priority areas that are of greatest relevance to their reform agendas. As the IMF has noted in its paper entitled "A Framework for Structural Reforms: Priorities and Guiding Principles", the identification of reform priorities begins with an assessment of the country's structural policy gaps as this will indicate where reforms are likely to have the largest impact in terms of boosting growth. The choice and design of specific structural reforms must necessarily be informed by a country's macroeconomic environment and national preferences. This includes taking into account the country's income level, its position in the economic cycle and its policy space for reforms.三、指導原則Guiding Principles九大優先領域下的具體指導原則如下：The guiding principles for each of the nine priority areas are listed as follows:（一）促進貿易和投資開放的指導原則Promoting trade and investment openness1. 減少關稅和非關稅貿易壁壘-- Reduce tariff and non-tariff barriers to trade2. 減少對外國直接投資的壁壘和限制-- Reduce barriers and restrictions to foreign direct investment3. 實施貿易便利化措施以降低邊境成本-- Implement trade facilitation measures to reduce border costs4. 適當減少貿易和投資的邊境後限制，促進更廣泛的跨境協調-- Reduce, as appropriate, behind-the-border restrictions on trade and investment and seek greater cross-border harmonisation5. 通過多邊、諸邊和雙邊協議最小化對第三方的歧視性措施，減少貿易和投資壁壘-- Reduce barriers to trade and investment through multilateral as well as plurilateral and bilateral agreements while minimising the discriminatory measures against third parties（二）推進勞動力市場改革及獲取教育與技能的指導原則Advancing labour market reforms, educational attainment and skills1. 減少對低參與率群體的勞動參與障礙，如女性、青年和老年工人-- Reduce barriers to the labour force for groups with low participation rates such as women, youth and older workers2. 擴大並改善積極勞動力市場政策的有效性-- Expand and improve the effectiveness of active labour market policies3. 從保護工作崗位向保護工人進行再平衡，降低勞動力市場的二元性和不規範性-- Rebalance protection from jobs to workers and reduce labour market duality and informality4. 改善職業教育、職業培訓、高等教育和技能培訓與再培訓的普及與效率-- Improve access and efficiency of vocational education and training, tertiary education, skilling and reskilling5. 通過提高早期幼兒教育、基礎教育和中等教育的普及性與質量來改善教育產出-- Improve educational outcomes through widening access and raising quality of early childhood, primary and secondary education6. 推動創造高質量的就業崗位，提高勞動生產率-- Promote quality job creation and enhance labour productivity（三）鼓勵創新的指導原則Encouraging innovation1. 確保並維持研發支出-- Ensure and sustain research and development expenditures2. 提高研發及創新支持政策的有效性和效率-- Raise effectiveness and efficiency of research and development and innovation support policies3. 增強研究機構/大學與產業界的合作-- Strengthen collaboration between research institutions/universities and industry4. 加強國際研究合作-- Improve international research cooperation5. 提高早期風險投資的可得性-- Improve access to early-stage venture capital（四）改善基礎設施的指導原則Improving infrastructure1. 提高公共基礎設施投資質量（同時確保基礎設施及其維護所需的充足資金），並通過包括政府和社會資本合作在內的方式促進私人部門參與-- Raise the quality of public infrastructure investment (while ensuring sufficient financing for infrastructure and infrastructure maintenance) and promote private sector participation including through the use of Public-Private Partnerships (PPPs)2. 提高基礎設施項目的監管審批效率，同時確保投標過程透明-- Raise the efficiency of regulatory approval processes for infrastructure projects, while ensuring transparent bidding processes3. 促進在公共基礎設施項目中使用成本收益及「物有所值」分析，可採用多標準分析作為補充-- Promote the use of cost-benefit and value-for-money analysis, possibly supplemented by multi-criteria analysis, for public infrastructure projects4. 減少機構投資者長期投資融資的制度障礙和監管障礙，並推廣新的融資工具，同時確保財務穩定-- Reduce institutional and regulatory barriers for long-term investment financing by institutional investors and promote new financial instruments while ensuring financial stability（五）促進財政改革的指導原則Promoting fiscal reform1. 通過增長友好型稅收/繳費和支出措施的支持，推動可持續的、全面的社會保障項目-- Promote sustainable and comprehensive social protection programs which are supported by growth-friendly tax/contribution and expenditure measures2. 拓寬稅基，並逐步消除低效的稅收支出-- Broaden the tax base and phase-out inefficient tax expenditures3. 確定增長友好型支出的重點，保持生產性公共投資並提高支出效率-- Prioritise growth-friendly expenditure, preserve productive public investment and improve efficiency in spending4. 提高稅款徵收的透明度和效率-- Improve the transparency and efficiency of tax collection5. 改善公共行政管理及公共服務供給的效率-- Improve the efficiency of public administration and public service delivery6. 加強財政框架、規則和制度的作用-- Strengthen the role of fiscal frameworks, rules and institutions7. 重點打擊騙稅和逃稅-- Focus on fighting tax fraud and tax evasion（六）促進競爭並改善商業環境的指導原則Promoting competition and an enabling environment1. 強化競爭法律及落實-- Strengthen competition law and enforcement2. 減少開辦企業和擴大經營的行政及法律障礙-- Reduce administrative and legal barriers to starting and expanding a business3. 促進公平的市場競爭-- Promote a level playing field for market competition4. 實施高效的破產程序-- Implement efficient bankruptcy procedures5. 減少妨礙競爭的限制性規定，減少額外的監管合規負擔，並對監管政策進行有效監督-- Reduce restrictive regulations that impair competition, lessen the excess burden of regulatory compliance and apply sound oversight of regulatory policy6. 加強法治，提高司法效率，打擊腐敗-- Enhance the rule of law, improve the efficiency of the judicial system and fight against corruption（七）改善並強化金融體系的指導原則Improving and strengthening the financial system1. 確保金融穩定-- Ensure financial stability2. 支持增長，加強競爭和創新，同時保持審慎目標-- Support growth, enhance competition and innovation while maintaining prudential objectives3. 確保有利於市場融資的制度框架，同時確保金融穩定並保護投資者-- Ensure that the institutional framework is conducive to market finance, while ensuring financial stability and investor protection4. 改善並強化傳統銀行融資和創新融資渠道，同時確保金融穩定-- Improve and strengthen access to both traditional bank financing and innovative sources of finance, while ensuring financial stability5. 防範金融機構活動的內生系統性風險，強化宏觀審慎政策框架-- Prevent systemic risks inherent in activities of financial institutions; strengthen macroprudential policy framework（八）增強環境可持續性的指導原則Enhancing environmental sustainability1. 推廣市場機制以減少汙染並提高資源效率-- Extend the use of market-based mechanisms to mitigate pollution and increase resource efficiency2. 促進清潔和可再生能源以及氣候適應性基礎設施的發展-- Promote the development of clean and renewable energy and climate-resilient infrastructure3. 推動與環境有關的創新的開發及運用-- Promote the development and deployment of environment-related innovations4. 提高能源效率-- Improve energy efficiency（九）促進包容性增長的指導原則Promoting inclusive growth1. 通過降低就業壁壘以及改善教育和培訓產出，改善機會平等-- Improve equality of opportunity by reducing barriers to employment and improving outcomes in education and training2. 擴大學前、初等教育和中等教育的覆蓋面並提高效率-- Expand coverage and enhance efficiency of pre-school, primary and secondary education3. 以增長和就業友好的方式開展有針對性的、設計完善的社會轉移支付及收入再分配計劃-- Provide social transfers and income redistribution programs that are well targeted and designed in a growth- and employment-friendly way4. 促進普惠金融和金融知識普及-- Promote financial inclusion and financial literacy5. 減少性別平等障礙，特別是在教育、就業和創業領域-- Reduce barriers to gender equality, particularly with respect to education, employment and entrepreneurship6. 採取措施減少某些促增長政策對不平等問題可能造成的負面影響-- Adopt measures to mitigate the possible adverse impact of certain pro-growth policies on inequality正如經濟合作與發展組織（OECD）所概括的，這些原則為G20成員在各優先領域下考慮開展改革提供了有用的高級別指導。需要注意的是，這些指導原則是在自願基礎上加以使用。這些原則不具有約束性及規範性，因為它們未必適用於所有準備在九大優先領域實施改革的國家。G20成員們認識到，在特定優先領域下開展改革時，應在不同的指導原則之間保持平衡。As outlined by the OECD, principles provide useful, high-level guidance to members when considering reforms in a given priority area. It is important to note that the principles above are intended to be used on a voluntary basis. They are non-binding and non-prescriptive, as they do not necessarily apply to all countries planning to undertake reforms in the nine priority areas discussed above. G20 members recognize that a balance needs to be struck between different principles when undertaking reforms within a priority area.G20成員可使用優先領域和指導原則引導開展政策改革，包括用於更新增長戰略。2016年，我們鼓勵G20成員自願運用九大優先領域，在本國增長戰略中探討使用新的結構性改革政策。The priorities and guiding principles may be used by members to help guide future policy reform efforts, including in the context of updating their growth strategies. In 2016, members have been encouraged to utilize, on a voluntary basis, the nine priority areas in discussing new structural reform policies in their 2016 growth strategies.四、量化框架：指標體系Quantitative Framework: Indicator System如前文所述，《G20深化結構性改革議程》的重要內容之一是建立一個指標體系,以更好地評估和監測G20成員在結構性改革方面的進展和成效，及其是否足以應對結構性挑戰。經過廣泛討論，並在國際組織特別是OECD的支持下，增長框架工作組就量化框架下一套共同的核心指標達成共識。這些核心指標旨在與《G20問責評估報告》以及IMF根據《G20衡量過度外部失衡的參考性指南》起草的《可持續性評估報告更新》中已使用的指標相互補充，避免彼此重複。As indicated above, the development of an indicator system to enhance the assessment and monitoring of the progress and effectiveness of G20 members' structural reform efforts and their adequacy to address structural challenges is an important component of the enhanced structural reform agenda. Following extensive discussions and with the support of international organizations, particularly the OECD, members of the Framework Working Group have agreed on the following common set of core indicators for the quantitative framework. This set of core indicators is intended to complement rather than duplicate the indicators already used in the G20 Accountability Assessment Report as well as the IMF's Update of Staff Sustainability Assessment, developed through the G20 Indicative Guidelines.（此處插入圖表，內容請見新華社新聞圖片專線所配發的相關稿件）OECD和世界銀行關於上述指標的更多說明見附件（略）。The annex provides further information from the OECD and World Bank Group on each of these indicators.指標體系將在今後不斷調整以使之更加全面，特別是將納入更多指標以覆蓋其他優先領域。It is expected that this indicator system will evolve over time to enhance its comprehensiveness, in particular to include additional indicators to cover other priority areas.關於數據來源，這些指標只使用已公開可得數據。在多數情況下，數據將主要來源於國際組織。當國際組織數據與國別數據存在明顯差別或有較大數據缺口時，國際組織將與G20成員進行協商。個別情況下，如果國際組織沒有某成員在某個指標上的數據，該成員可提出有數據來源的其他指標進行代替。成員提出的建議替代指標應適於對優先領域進行評估，且可能需同國際組織就該指標與原指標的總體可比性進行討論。With respect to data sources, the indicators make use only of data that is already publicly available. In most cases, international organizations will be the main source of data for the above indicators, and international organizations will discuss with members where significant inconsistencies or substantial data gaps as compared with national data sources exist. In those few cases where the international organizations do not currently collect the data on an indicator for a member, the member may propose an alternative indicator for which they collect the data. Members' proposed alternative indicators should be appropriate for assessing the priorities and would require discussion with international organizations on the overall comparability with the missing common indicators.指標的使用Usage of Indicators如前所述，建立指標體系的主要目的是對G20在結構性改革領域的進展及其是否足以應對結構性挑戰進行評估和監測。在此背景下，OECD將在吸收其他國際組織意見的基礎上準備一份技術報告，利用這套共同指標協助評估G20在九大優先領域的進展和挑戰。報告內容主要分兩部分：As mentioned, a key purpose of the development of the indicator system is to help assess and monitor the progress of G20 structural reforms and their adequacy to address structural challenges, taking into account the diversity of country circumstances. In this context, the OECD will produce a technical report, with input from other international organizations, using the common set of indicators to help assess G20 progress and challenges within the structural reform priority areas. The report will consist of two components:1. 使用相關指標評估G20整體在優先領域的改革情況，對於不存在各方一致認可指標的優先領域，將補充使用公開可得的其他信息進行評估。-- An assessment of the G20’s collective structural reform efforts in the priority areas drawing on the data on the indicators and supplemented by other publicly available information specifically for those priority areas with no agreed-upon indicators.2. 使用「儀錶板」（Dashboard）方法對各國指標進行解讀。-- A description of individual members』 data on indicators presented using a dashboard approach.G20增長戰略，包括同行審議，以及OECD技術報告的有關信息將視情納入《G20問責評估報告》。包含國別系列指標圖表的「儀錶板」可作為《G20問責評估報告》的附件。這些圖表將展示成員在一段時間內各項指標的變化。Relevant information from the G20 growth strategies, including the peer reviews, and the OECD technical report will feed into the annual G20 Accountability Assessment Report as appropriate. Dashboards consisting of a series of charts for each member could be included in the Accountability Assessment Report. The charts would illustrate the member's changes against each of the indicators over time.從2017年起，OECD將每兩年準備一份技術報告，與IMF根據《G20衡量過度外部失衡的參考性指南》起草的《可持續性報告更新》保持同步。各指標的數據將以2016年為基準，並將用於2017年及之後的技術報告中。The frequency of the OECD technical report will be every two years to coincide with the IMF's Update of Staff Sustainability Assessments based on the G20 Indicative Guidelines, beginning in 2017. Data available in 2016 will form the benchmark for each of the indicators and will be used to produce the technical report in 2017 going forward.需要注意的是，在討論指標分析結果時，還應反映各國國情。我們也認識到，並非所有國家都會同時在所有優先領域開展改革。指標將以「儀錶板」方式呈現，但其意圖並非用於跨國比較，而是展示各成員在國別層面的進展。It is important to note that national circumstances will need to be reflected in the discussion of the results of the indicators. It is also understood that not all countries will necessarily be pursuing reforms in all priority areas at the same time. While the indicators will be presented in a dashboard approach, these are not meant for cross-country comparisons, but rather to demonstrate daevelopments at the member level over time.此外，各成員也可以在制定本國增長戰略及開展同行審議過程中，自行選擇使用其他的政策指標和產出指標，就改革對促增長的預期效果開展自我量化評估，以強化對結構性政策挑戰的分析和對改革進展的監測。對於這類指標，各成員可自行選擇數據來源。Furthermore, members may use additional policy and outcome indicators of their own choosing and give their own quantitative assessment of expected growth impact of reforms within their growth strategies as well as during the peer review process, to enhance the analysis of structural policy challenges as well as to monitor the progress of structural reforms. Members may use their own data sources for these additional indicators.五、結論Conclusion結構性改革對提高生產率和潛在產出、促進包容性增長具有重要作用。《G20深化結構性改革議程》涵蓋了改革的優先領域、指導原則和指標體系，展示了G20對有效、有力實施結構性改革的承諾，也是G20促進強勁、可持續、平衡增長努力的一部分。加大對結構性改革的重視將有助於提高潛在增長，使G20經濟體更具創新性、強勁、有韌性。Structural reforms play an essential role in boosting productivity and potential output as well as fostering inclusive growth. The G20's enhanced structural reform agenda, comprising the priority areas, their guiding principles and the indicator system, demonstrates the G20’s commitment to the implementation of effective and impactful structural reforms as part of its efforts to foster strong, sustainable and balanced growth. An increased focus on implementing structural reforms will help bolster potential growth and make G20 economies more innovative, strong and resilient.增長框架工作組將尋求機會繼續完善《G20深化結構性改革議程》。《G20深化結構性改革議程》將納入增長框架工作組現有工作中，作為幫助評估各成員國結構性改革努力的一項工具。在2016年的基礎上，今後可能將可能加入其他政策指標和產出指標以強化現有指標體系。此外，增長框架工作組還將繼續視情探討運用指標體系的其他途徑，以充實對各國所面臨結構性挑戰的分析，並監測結構性改革的實施進展。

The Framework Working Group will look for opportunities to continue to improve the G20's enhanced structural reform agenda. This enhanced structural reform agenda will be incorporated into the existing workstream of the Framework Working Group as a tool to help assist members' structural reform efforts. Building on the foundation laid in 2016, other policy and outcome indicators may be added in future years to enhance the system. Moreover, the Framework Working Group will continue, as appropriate, to explore additional ways to utilize the indicator system to enrich analyses of the structural challenges members face and to monitor progress with the implementation of structural reforms.

 

(Source: Xinhua)