农村最低生活保障制度研究
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摘要
农村的稳定和可持续发展关系到和谐社会的建设,也关系到全面建设小康社会目标的实现。新中国成立以来,尤其是改革开放30年来,我国农村发生了显著的变化,农民的生存状况和生活质量有了很大提高,但是农村的贫困问题却一直存在。为了解决农村的贫困问题,我国政府投入了大量的人力物力,开展了多种形式的扶贫工作,但是近年来的扶贫效果却越来越差,这是因为目前引起贫困的主要原因有一部分是难以得到根本解决的,例如因为残疾或重病造成的低工作能力,或者是因为家庭劳动力减少而造成的高抚养率的问题等。这说明我国传统的开发式扶贫政策对于解决我国农村的绝对贫困问题已经是事倍功半,需要一种新的制度安排来解决我国农村剩余贫困问题。
社会保障制度是经济社会发展的稳定器,作为社会保障制度的一个重要组成部分,农村居民最低生活保障制度是解决我国农村剩余贫困问题的现实选择,这是因为农村最低生活保障制度更具有制度上的规范性以及精确性,可以形成解决困难群众生活问题的长效机制,而且我国当前也已经具备了在全国范围内建立农村最低生活保障制度,全面解决农村温饱问题的财力和能力。
我国农村最低生活保障制度的探索始于1992年山西省左云县的试点,由于受到传统农村集体福利思维定式的影响,缺少中央和地方财政的投入,农村最低生活保障制度的建设一度出现停滞和倒退。从2007年起,我国开始在全国范围内建立农村最低生活保障制度,到目前为止,农村居民最低生活保障制度仍然在不断地改进和完善,并且也起到了保障和维护农民的利益,缓和社会矛盾,维护社会稳定的作用,但同时制度本身也存在一定的问题。正是在此背景下,本研究围绕农村最低生活保障制度运行的评价与改进展开。
本研究的目的在于评价江苏省农村最低生活保障制度的运行效果,发现农村最低生活保障制度运行中存在的问题,寻找制度中有待于进一步改进和完善之处,进而提出制度改进的措施与建议。本研究的理论意义在于对我国农村最低生活保障制度运行的管理体制、运行机制等方面进行研究,尤其是对在我国现阶段国情的约束下,农村最低生活保障制度的定位以及应该如何建设和发展进行了探讨,可以丰富我国的社会保障理论和农村发展理论。同时通过以江苏省为例,进行农村最低生活保障制度的分析研究,发现问题,提出相应的建议,为江苏省农村最低生活保障制度的发展与完善提供政策参考。
本论文的主要创新点在于以扩展线性支出模型为基础,提出具有可操作性的农村最低生活保障标准的制定依据和方法；以低保资金需求系统模型为基础,结合用扩展线性支出模型计算出的农村最低生活保障线,制定出科学的人均补差的计算方法。同时,本论文也对江苏省农村最低生活保障制度的地区、城乡差别的合理性在理论上进行了探讨,并得出初步的结论。
本文在已有研究的基础上,逐步展开论述,首先分析了我国农村最低生活保障制度的发展历程、现状及问题。指出由于农村居民收入界定困难以及地方财力的不足,农村最低生活保障制度未能实现应保尽保；在农村最低生活保障制度的资金筹集方面,我国农村最低生活保障的筹资渠道比较单一,主要依靠政府财政的投入,这导致在一些经济欠发达的地区单靠地方财政难以保证低保资金的充分供应,在一定程度上影响了农村最低生活保障制度的保障效果；在保障标准方面,我国农村最低生活保障待遇标准过低,保障线的制定存在一定的随意性,保障标准的地域差异也比较大；在管理体制方面,存在农村最低生活保障制度缺乏法律保障,基层工作人员数量不足,管理信息化程度低等问题,降低了农村最低生活保障制度的管理效率。
本文对江苏省农村最低生活保障制度运行与保障水平进行了分析,因为政府资源投入的意愿和力度是影响制度建设的重要因素,而政府出台的政策能够反映政府资源投入的倾向,因此,在该部分的分析中,首先基于城乡对比的视角分析了江苏省最低生活保障相关政策,发现江苏省农村最低生活保障制度的建设落后于城市；然后介绍了江苏省农村最低生活保障制度的运行机制,分析了江苏省农村最低生活保障水平的年度、城乡、地区差异,指出农村最低生活保障标准和人均补差逐年提高,并且在2007年由于保障标准自然增长机制的建立使得保障标准的增长呈现拐点。在地区差异方面,保障标准的地区差异与传统上的江苏省经济发展苏南、苏中、苏北三个层次相吻合,而苏中和苏北的人均补差水平则差异不大。在城乡差别方面,城市最低生活保障标准和人均补差均高于农村,各地城市之间最低生活保障制度的补差水平逐渐接近,而农村最低生活保障制度补差水平的差距在逐渐扩大。本部分的最后以江苏省丹阳市作为案例分析了农村最低生活保障制度的运行情况以及存在的问题。
本文还对对江苏省农村最低生活保障政策的实施效果进行了评价,在对农村最低生活保障标准与人均收入相关联的政策进行评价时,根据回归分析的结果,得出目前江苏省已经建立起农村最低生活保障标准与农村人均纯收入的关联关系的结论；通过剔除省补资金后对江苏省人均补差地区差异的分析,得出省补资金在弥合地区差异方面确实发挥了作用的结论。本部分用扩展线性支出模型计算出农村居民的基本消费需求,与实际的最低生活保障线进行对比,得出目前江苏省农村最低生活保障标准偏低、计算方法不科学的结论。通过构建低保资金需求模型,计算低保户的补助资金需求,并与实际的补差数额比较,得出目前补差水平偏低的结论。本部分的最后融合扩展线性支出模型和低保资金需求模型,提出了修改后的农村最低生活保障补差模型。
在提出政策建议之前,本文对国外社会救助制度的经验进行了借鉴。在全文的最后提出文章的结论,指出农村最低生活保障制度存在应保未保、筹资方式单一、保障标准不合理、农村最低生活保障制度的建设滞后于城市等问题、提出了建立切实可行的农村最低生活保障标准和补差的测算方法,加大国家投入力度,建立混合筹资机制,提高最低生活保障工作人员素质,加强最低生活保障监督管理等政策建议,并且对城乡最低生活保障制度一体化的前景进行了展望,提出通过“统一筹划,制度有别”,“制度统一,标准有别”两个阶段最终建立城乡统一的最低生活保障制度。
The stable and sustainable development in rural areas is related to the construction of harmonious society and the goals of building a moderately prosperous society in an all-round. Since the establishment of P. R. China, especially the thirty years after the reforms and opening-up, significant changes have occurred in the rural area, but at the same time the poverty of rural areas has been a problem for a long time. In order to solve the problem of rural poverty, our government inputs a lot of human and material resources and carries out various forms of poverty alleviation, but in recent years the effect of poverty reduction is getting worse and worse. The reason is that now the part of the main causes of poverty is difficult to be solved totally, such as low working ability caused by disability or serious illness, the high dependency ratio caused by the reduction family labor and so on. This shows that the traditional developmental rural poverty reduction policies which solve the problem of absolute poverty in rural areas are already a duplication of efforts, and we need a new institutional arrangement to solve the problem of poverty in rural remainder.
Social security system is the stabilizer of economic and social development. As an important part of the social security system, the rural minimum living security system is the realistic choice of solving the problem of the rural remaining poverty, which is because the rural minimum living security system is institutionally normative and accuracy and can form the long-term mechanism to solve people's living problem. At the same time, our country has already had the financial resources and capacity to set up a national rural minimum living security system to solve the shortage of food and clothing in rural areas totally.
The exploration of building rural minimum living security system began in Zuoyun Town in Shanxi Province,1992. Due to the affection of the traditional rural welfare thought style and lack of financial investment from the central and local governments, the construction of rural minimum living security system met some stagnation and retrogression in certain period. Since 2007, China began to establish a nationwide minimum living security system in rural areas and the project has been improved and perfected continually so far and it has played an important role in protecting farmers'interest and easing social conflicts and maintaining the social stability. At the same time, there are also some shortcomings and problems, so the study tries to focus on the evaluation and improvement of the rural minimum living standard security system and to develop a deeper exploration under such complex background.
The purpose of this study is to evaluate the effectiveness of the rural minimum living security system in Jiangsu Province, find out the problems of the system and propose the suggestions and countermeasures for further improvement. The theoretical significance of this study is to discuss the management and operation methods on the rural minimum livelihood security system, especially the position and development of the rural minimum living standard security system in regarding of the constraints of our present situations, as well as to enrich the theory of China's social security and development in countryside. Meanwhile, the study takes Jiangsu Province as a sample to analyze the rural minimum living security system, identify problems and make recommendations accordingly for the rural minimum living security system of Jiangsu Province.
The main innovation of the thesis is to develop the foundation and methods of a workable rural minimum living security line on the basis of the expanding linear expenditure model, to make the scientific methods of calculating per capita subsidy on the basis of minimal needs-based funding requirements model, combining with the rural minimum living security line which is worked out to help expanding linear expenditure model. Meanwhile, the study also discusses the rationality of the urban-rural differences in the places where carries out the system in Jiangsu Province and then puts forward preliminary conclusions.
Based on existing research, the article expands the statement gradually. First, the article analyzes the development process, current situation and problems of the rural minimum living security system, which points out that due to the difficulties in defining the income of rural residents and the lack of local financial resources, the rural minimum living security system did not cover all the people who should be in. In the rural minimum living security system funding side, the ways of funding are relatively simple and mainly rely on governmental financial input which resulted in a number of underdeveloped areas having difficulties in ensuring adequate supply of subsistence allowances only relying on the local governmental financial resources. To some extent, this reduces the effects of rural minimum living security system. In the security standards side, the standards of treatment of the rural minimum living security system are so low, the formulation of the security lines is certainly arbitrariness, and the differences in security standards of different regions are that great. In the administration system side, there is a lack of legal protection for the rural minimum living security system, grass-roots staff and management information, and all these problems reduce management efficiency of the rural minimum living security system.
The article analyzes the operational and security level of the rural minimum living security system in Jiangsu Province. It is because that willingness and strength of the government resources put into is an important factor and the policies made by the government can reflect the tendency of government resources put in. So, in this part, the article first analyzes the related policies about Jiangsu Province subsistence policies based on the perspective of the comparison of urban and rural areas, and finds that the construction of the rural minimum living security system goes far more behind urban areas. Next, the article introduces the operation mechanism of the rural minimum living security system in Jiangsu Province and analyses the differences of annual minimum living standard in urban and rural areas and in different regions of the Jiangsu Province which points out that the rural minimum living standards and per making up increase year by year, and security standards in 2007 the security standard makes up the turning point because of natural growth in the establishment of mechanism. In the regional differences aspect, the differences in security standards of different regions match traditional three levels'economic development of Jiangsu Province, Southern, Middle and Northern, whereas differences in the per making up between middle and northern Jiangsu are not significant. In the urban-rural differences aspect, the security standards and per making up in urban minimum living are higher than that of the rural areas. Besides, the difference in per making up of the minimum living system between cities approaches gradually, while the difference in per making up of the minimum living system between villages expands larger and larger gradually. Finally, at the end of this part, taking Danyang City of Jiangsu Province as an example, the article studies the operation and problems of rural minimum living security system.
This article also evaluates the results of Jiangsu rural minimum living policy. When evaluating the rural minimum living standard and per capita income related policies, according to the results of the regression analysis, the article obtains that at present Jiangsu Province has established the relationship between rural minimum living standard and per capita net income in rural areas. By the analysis of the difference in various areas where per making up is carried out and the eliminating Jiangsu's own allowance, the paper draws up that the provincial funds indeed plays a role to bridge the regional differences. In this part, we make use of the extended linear expenditure model to calculate the basic consumption needs of rural residents to compare with the actual minimum living security line, and make the conclusions that the rural minimum living standard of Jiangsu Province is low and unscientific. By building minimum living security fund demand model, to calculate the demand for subsidies for household subsistence allowances, and to compare with the actual amount of makeup, we come to the conclusion of the current low level of the makeup. Finally, we revised the model of the rural minimum living making up though the integration of the extended linear expenditure model and the minimal needs funding requirements model.
Before making policy recommendations, this paper references the experience of foreign social assistance system. At the end of the paper, the conclusion is indicated which points out that the rural minimum living security system exits some problems, like limited coverage, simplex fund collection, illogical security standard, the construction of the rural minimum living security system far behind the urban areas, etc. Besides, the article also puts forward some countermeasures and suggestions:establishment the realistic calculation method for security standard and subsidy, increasing national investment and mixed financial mechanisms, improving the staff's professional knowledge, strengthening the supervision and management of the system etc. In addition, a brighter future of the integration of the minimum living security system for urban and rural is prospected. After the two stages that "Unified Design, Different System" and "Unified System, Different Standard", here will establish the urban-rural integration minimum living standard system.
社会保障制度是经济社会发展的稳定器,作为社会保障制度的一个重要组成部分,农村居民最低生活保障制度是解决我国农村剩余贫困问题的现实选择,这是因为农村最低生活保障制度更具有制度上的规范性以及精确性,可以形成解决困难群众生活问题的长效机制,而且我国当前也已经具备了在全国范围内建立农村最低生活保障制度,全面解决农村温饱问题的财力和能力。
我国农村最低生活保障制度的探索始于1992年山西省左云县的试点,由于受到传统农村集体福利思维定式的影响,缺少中央和地方财政的投入,农村最低生活保障制度的建设一度出现停滞和倒退。从2007年起,我国开始在全国范围内建立农村最低生活保障制度,到目前为止,农村居民最低生活保障制度仍然在不断地改进和完善,并且也起到了保障和维护农民的利益,缓和社会矛盾,维护社会稳定的作用,但同时制度本身也存在一定的问题。正是在此背景下,本研究围绕农村最低生活保障制度运行的评价与改进展开。
本研究的目的在于评价江苏省农村最低生活保障制度的运行效果,发现农村最低生活保障制度运行中存在的问题,寻找制度中有待于进一步改进和完善之处,进而提出制度改进的措施与建议。本研究的理论意义在于对我国农村最低生活保障制度运行的管理体制、运行机制等方面进行研究,尤其是对在我国现阶段国情的约束下,农村最低生活保障制度的定位以及应该如何建设和发展进行了探讨,可以丰富我国的社会保障理论和农村发展理论。同时通过以江苏省为例,进行农村最低生活保障制度的分析研究,发现问题,提出相应的建议,为江苏省农村最低生活保障制度的发展与完善提供政策参考。
本论文的主要创新点在于以扩展线性支出模型为基础,提出具有可操作性的农村最低生活保障标准的制定依据和方法；以低保资金需求系统模型为基础,结合用扩展线性支出模型计算出的农村最低生活保障线,制定出科学的人均补差的计算方法。同时,本论文也对江苏省农村最低生活保障制度的地区、城乡差别的合理性在理论上进行了探讨,并得出初步的结论。
本文在已有研究的基础上,逐步展开论述,首先分析了我国农村最低生活保障制度的发展历程、现状及问题。指出由于农村居民收入界定困难以及地方财力的不足,农村最低生活保障制度未能实现应保尽保；在农村最低生活保障制度的资金筹集方面,我国农村最低生活保障的筹资渠道比较单一,主要依靠政府财政的投入,这导致在一些经济欠发达的地区单靠地方财政难以保证低保资金的充分供应,在一定程度上影响了农村最低生活保障制度的保障效果；在保障标准方面,我国农村最低生活保障待遇标准过低,保障线的制定存在一定的随意性,保障标准的地域差异也比较大；在管理体制方面,存在农村最低生活保障制度缺乏法律保障,基层工作人员数量不足,管理信息化程度低等问题,降低了农村最低生活保障制度的管理效率。
本文对江苏省农村最低生活保障制度运行与保障水平进行了分析,因为政府资源投入的意愿和力度是影响制度建设的重要因素,而政府出台的政策能够反映政府资源投入的倾向,因此,在该部分的分析中,首先基于城乡对比的视角分析了江苏省最低生活保障相关政策,发现江苏省农村最低生活保障制度的建设落后于城市；然后介绍了江苏省农村最低生活保障制度的运行机制,分析了江苏省农村最低生活保障水平的年度、城乡、地区差异,指出农村最低生活保障标准和人均补差逐年提高,并且在2007年由于保障标准自然增长机制的建立使得保障标准的增长呈现拐点。在地区差异方面,保障标准的地区差异与传统上的江苏省经济发展苏南、苏中、苏北三个层次相吻合,而苏中和苏北的人均补差水平则差异不大。在城乡差别方面,城市最低生活保障标准和人均补差均高于农村,各地城市之间最低生活保障制度的补差水平逐渐接近,而农村最低生活保障制度补差水平的差距在逐渐扩大。本部分的最后以江苏省丹阳市作为案例分析了农村最低生活保障制度的运行情况以及存在的问题。
本文还对对江苏省农村最低生活保障政策的实施效果进行了评价,在对农村最低生活保障标准与人均收入相关联的政策进行评价时,根据回归分析的结果,得出目前江苏省已经建立起农村最低生活保障标准与农村人均纯收入的关联关系的结论；通过剔除省补资金后对江苏省人均补差地区差异的分析,得出省补资金在弥合地区差异方面确实发挥了作用的结论。本部分用扩展线性支出模型计算出农村居民的基本消费需求,与实际的最低生活保障线进行对比,得出目前江苏省农村最低生活保障标准偏低、计算方法不科学的结论。通过构建低保资金需求模型,计算低保户的补助资金需求,并与实际的补差数额比较,得出目前补差水平偏低的结论。本部分的最后融合扩展线性支出模型和低保资金需求模型,提出了修改后的农村最低生活保障补差模型。
在提出政策建议之前,本文对国外社会救助制度的经验进行了借鉴。在全文的最后提出文章的结论,指出农村最低生活保障制度存在应保未保、筹资方式单一、保障标准不合理、农村最低生活保障制度的建设滞后于城市等问题、提出了建立切实可行的农村最低生活保障标准和补差的测算方法,加大国家投入力度,建立混合筹资机制,提高最低生活保障工作人员素质,加强最低生活保障监督管理等政策建议,并且对城乡最低生活保障制度一体化的前景进行了展望,提出通过“统一筹划,制度有别”,“制度统一,标准有别”两个阶段最终建立城乡统一的最低生活保障制度。
The stable and sustainable development in rural areas is related to the construction of harmonious society and the goals of building a moderately prosperous society in an all-round. Since the establishment of P. R. China, especially the thirty years after the reforms and opening-up, significant changes have occurred in the rural area, but at the same time the poverty of rural areas has been a problem for a long time. In order to solve the problem of rural poverty, our government inputs a lot of human and material resources and carries out various forms of poverty alleviation, but in recent years the effect of poverty reduction is getting worse and worse. The reason is that now the part of the main causes of poverty is difficult to be solved totally, such as low working ability caused by disability or serious illness, the high dependency ratio caused by the reduction family labor and so on. This shows that the traditional developmental rural poverty reduction policies which solve the problem of absolute poverty in rural areas are already a duplication of efforts, and we need a new institutional arrangement to solve the problem of poverty in rural remainder.
Social security system is the stabilizer of economic and social development. As an important part of the social security system, the rural minimum living security system is the realistic choice of solving the problem of the rural remaining poverty, which is because the rural minimum living security system is institutionally normative and accuracy and can form the long-term mechanism to solve people's living problem. At the same time, our country has already had the financial resources and capacity to set up a national rural minimum living security system to solve the shortage of food and clothing in rural areas totally.
The exploration of building rural minimum living security system began in Zuoyun Town in Shanxi Province,1992. Due to the affection of the traditional rural welfare thought style and lack of financial investment from the central and local governments, the construction of rural minimum living security system met some stagnation and retrogression in certain period. Since 2007, China began to establish a nationwide minimum living security system in rural areas and the project has been improved and perfected continually so far and it has played an important role in protecting farmers'interest and easing social conflicts and maintaining the social stability. At the same time, there are also some shortcomings and problems, so the study tries to focus on the evaluation and improvement of the rural minimum living standard security system and to develop a deeper exploration under such complex background.
The purpose of this study is to evaluate the effectiveness of the rural minimum living security system in Jiangsu Province, find out the problems of the system and propose the suggestions and countermeasures for further improvement. The theoretical significance of this study is to discuss the management and operation methods on the rural minimum livelihood security system, especially the position and development of the rural minimum living standard security system in regarding of the constraints of our present situations, as well as to enrich the theory of China's social security and development in countryside. Meanwhile, the study takes Jiangsu Province as a sample to analyze the rural minimum living security system, identify problems and make recommendations accordingly for the rural minimum living security system of Jiangsu Province.
The main innovation of the thesis is to develop the foundation and methods of a workable rural minimum living security line on the basis of the expanding linear expenditure model, to make the scientific methods of calculating per capita subsidy on the basis of minimal needs-based funding requirements model, combining with the rural minimum living security line which is worked out to help expanding linear expenditure model. Meanwhile, the study also discusses the rationality of the urban-rural differences in the places where carries out the system in Jiangsu Province and then puts forward preliminary conclusions.
Based on existing research, the article expands the statement gradually. First, the article analyzes the development process, current situation and problems of the rural minimum living security system, which points out that due to the difficulties in defining the income of rural residents and the lack of local financial resources, the rural minimum living security system did not cover all the people who should be in. In the rural minimum living security system funding side, the ways of funding are relatively simple and mainly rely on governmental financial input which resulted in a number of underdeveloped areas having difficulties in ensuring adequate supply of subsistence allowances only relying on the local governmental financial resources. To some extent, this reduces the effects of rural minimum living security system. In the security standards side, the standards of treatment of the rural minimum living security system are so low, the formulation of the security lines is certainly arbitrariness, and the differences in security standards of different regions are that great. In the administration system side, there is a lack of legal protection for the rural minimum living security system, grass-roots staff and management information, and all these problems reduce management efficiency of the rural minimum living security system.
The article analyzes the operational and security level of the rural minimum living security system in Jiangsu Province. It is because that willingness and strength of the government resources put into is an important factor and the policies made by the government can reflect the tendency of government resources put in. So, in this part, the article first analyzes the related policies about Jiangsu Province subsistence policies based on the perspective of the comparison of urban and rural areas, and finds that the construction of the rural minimum living security system goes far more behind urban areas. Next, the article introduces the operation mechanism of the rural minimum living security system in Jiangsu Province and analyses the differences of annual minimum living standard in urban and rural areas and in different regions of the Jiangsu Province which points out that the rural minimum living standards and per making up increase year by year, and security standards in 2007 the security standard makes up the turning point because of natural growth in the establishment of mechanism. In the regional differences aspect, the differences in security standards of different regions match traditional three levels'economic development of Jiangsu Province, Southern, Middle and Northern, whereas differences in the per making up between middle and northern Jiangsu are not significant. In the urban-rural differences aspect, the security standards and per making up in urban minimum living are higher than that of the rural areas. Besides, the difference in per making up of the minimum living system between cities approaches gradually, while the difference in per making up of the minimum living system between villages expands larger and larger gradually. Finally, at the end of this part, taking Danyang City of Jiangsu Province as an example, the article studies the operation and problems of rural minimum living security system.
This article also evaluates the results of Jiangsu rural minimum living policy. When evaluating the rural minimum living standard and per capita income related policies, according to the results of the regression analysis, the article obtains that at present Jiangsu Province has established the relationship between rural minimum living standard and per capita net income in rural areas. By the analysis of the difference in various areas where per making up is carried out and the eliminating Jiangsu's own allowance, the paper draws up that the provincial funds indeed plays a role to bridge the regional differences. In this part, we make use of the extended linear expenditure model to calculate the basic consumption needs of rural residents to compare with the actual minimum living security line, and make the conclusions that the rural minimum living standard of Jiangsu Province is low and unscientific. By building minimum living security fund demand model, to calculate the demand for subsidies for household subsistence allowances, and to compare with the actual amount of makeup, we come to the conclusion of the current low level of the makeup. Finally, we revised the model of the rural minimum living making up though the integration of the extended linear expenditure model and the minimal needs funding requirements model.
Before making policy recommendations, this paper references the experience of foreign social assistance system. At the end of the paper, the conclusion is indicated which points out that the rural minimum living security system exits some problems, like limited coverage, simplex fund collection, illogical security standard, the construction of the rural minimum living security system far behind the urban areas, etc. Besides, the article also puts forward some countermeasures and suggestions:establishment the realistic calculation method for security standard and subsidy, increasing national investment and mixed financial mechanisms, improving the staff's professional knowledge, strengthening the supervision and management of the system etc. In addition, a brighter future of the integration of the minimum living security system for urban and rural is prospected. After the two stages that "Unified Design, Different System" and "Unified System, Different Standard", here will establish the urban-rural integration minimum living standard system.
引文
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