低保目标瞄准偏差的乡土逻辑
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摘要
农村最低生活保障制度自2007年全面推行以来,在救助农村贫困群体方面起到了重要作用。从福利治理角度来看,社会救助资源仍存在明显漏出现象。从政策执行环境来看,转型与变迁中的乡土逻辑对社会救助目标瞄准政策的执行提出了巨大挑战。研究选取天津市的3个村庄作为调查地点,探究农村低保目标瞄准政策在不同乡土场域的执行过程和结果,发现低保目标瞄准政策执行过程中所出现的变通,是瞄准偏差产生的直接原因,而转型与变迁中的乡土社会通过形塑福利治理进而对低保目标瞄准过程产生影响,是瞄准偏差产生的深层原因。
Since the full implementation of the rural minimum living security system in 2007,it has played an important role in helping rural poor groups.However,from the perspective of welfare governance,despite the continuous expansion of social welfare policies in recent years and the continuous improvement of the project system,the welfare resources donated by the state have not been fully transformed into people's welfare.The rural poverty situation is still severe.Judging from the implementation environment of the targeting policy of the minimum living security,the rural society in transition has undergone tremendous changes.This study uses that as the research background and selects three villages in Tianjin as cases to analyze the implementation process and results of rural minimum living security targeting policy in different fields.The study finds that the various changes are the reasons that lead to targeting errors,and the root cause is that the rural society in transformation has shaped the implementation process of the targeting policies through shaping of welfare governance.
Since the full implementation of the rural minimum living security system in 2007,it has played an important role in helping rural poor groups.However,from the perspective of welfare governance,despite the continuous expansion of social welfare policies in recent years and the continuous improvement of the project system,the welfare resources donated by the state have not been fully transformed into people's welfare.The rural poverty situation is still severe.Judging from the implementation environment of the targeting policy of the minimum living security,the rural society in transition has undergone tremendous changes.This study uses that as the research background and selects three villages in Tianjin as cases to analyze the implementation process and results of rural minimum living security targeting policy in different fields.The study finds that the various changes are the reasons that lead to targeting errors,and the root cause is that the rural society in transformation has shaped the implementation process of the targeting policies through shaping of welfare governance.
引文
[1] Fan L,Habibov N.Targeting Social Assistance in Azerbaijan:What Can We Learn From Micro-data?[J].International Journal of Social Welfare,2008,17(4):346-354.
[2] Walle D V D.Assessing the Welfare Impacts of Public Spending[J].World Development,1998,26(3):365-379.
[3] 张健,熊贵彬,彭华民.新常态背景下的社会福利治理研究——第七届中国社会学社会福利论坛综述[J].社会工作,2016(1):115-120.
[4] 唐晓腾.中国乡村的嬗变与记忆:对城市化过程中农村社会现状中的实证观察[M].北京:中国社会科学出版社,2010:3-19.
[5] Coady D,Grosh M,Hoddinott J,et al.Targeting of Transfers in Developing Countries:Review of Experience and Lessons[J].World Bank Publications,2010,34(1):1-110.
[6] Vadapalli D K.Barriers and Challenges in Accessing Social Transfers and Role of Social Welfare Services in Improving Targeting Efficiency:A Study of Conditional Cash Transfer[J].Vulnerable Children &Youth Studies,2009,4(sup1):41-54.
[7] 童星,王增文.农村低保标准及其配套政策研究[J].天津社会科学,2010(2):49-51.
[8] 朱梦冰.精准扶贫重在精准识别贫困人口——农村低保政策的瞄准效果分析[J].中国社会科学,2017(9):90-112.
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[10] Chen S,Ravallion M,Wang Y.Dibao:A Guaranteed Minimum Income in Urban China?[Z].World Bank Policy Research Working Paper,No.3805,2006.
[11] Li M,Walker R.Targeting Social Assistance:Dibao and Institutional Alienation in Rural China[J].Social Policy &Administration,2018,52(3):771-789.
[12] Ravallion M,Jalan J.Growth Divergence Due to Spatial Externalities[J].Economics Letters,1996,53(2):227-232.
[13] Tunstall R,Lupton R.Is Targeting Deprived Areas an Effective Means to Reach Poor People?An Assessment of One Rationale for Area-based Funding Programmes[R].CASE(Centre for Analysis of Social Exclusion,London School of Economics)Paper,No.70,2003.
[14] Jalan J,Ravallion M.Are There Dynamic Gains From A Poor-area Development Program?[J].Journal of Public Economics,1996,67(1):65-85.
[15] Conning J,Kevane M.Community-based Targeting Mechanisms for Social Safety Nets:A Critical Review[J].World Development,2002,30(3):375-394.
[16] Pierson P.The New Politics of the Welfare State[J].World Politics,1996,48(2):143-179.
[17] Park A,Wang S,Wu G.Regional Poverty Targeting in China[J].Journal of Public Economics,2002,86(1):123-153.
[18] 周雪光.基层政府间的“共谋现象”——一个政府行为的制度逻辑[J].社会学研究,2008(6):1-21.
[19] Lipsky M.Street-level Bureaucracy:The Dilemmas of the Individual in Public Service[J].Michigan Law Review,1980,3(4):102-104.
[20] 吕德文.乡村社会的治理[M].济南:山东人民出版社,2013:151-157.
[21] 李宜钊.政策执行中的复杂性研究[M].北京:人民出版社,2015:27-34.
[22] 朱亚鹏,刘云香.制度环境、自由裁量权与中国社会政策执行——以C市城市低保政策执行为例[J].中山大学学报(社会科学版),2014,54(6):159-168.
[23] Blank R M,Ruggles P.When Do Women Use Aid to Families With Dependent Children and Food Stamps?The Dynamics of Eligibility Versus Participation[J].Journal of Human Resources,2010,31(1):57-89.
[24] 何平.家计调查行为的法学思考[J].武汉理工大学学报(社会科学版),2014,27(2):287-291.
[25] Dorsett R,Heady C.The Take-up of Means-tested Benefits by Working Families With Children[J].Fiscal Studies,1991,12(4):22-32.
[26] 赵代博,程令伟.“价值理性”与福利政策瞄准偏差——基于甘肃省东部农村新农合的调查[J].社会保障研究,2017(3):60-66.
[27] 张瑞凯.中国农村居民社会福利意识研究——基于北京市的抽样调查[J].社会建设,2015(1):47-59.
[28] 汪雁,慈勤英.中国传统社会救济与城市贫困人口社会救助理念建设[J].人口学刊,2001(5):38-44.
[29] 方菲,李华燊.农村低保制度的伦理失范及其矫治探讨[J].求实,2010(8):89-92.
[30] 杨立雄,刘喜堂.当代中国社会救助制度:回顾与展望[M].北京:人民出版社,2012:66-67.
[31] Li M,Walker R.Shame,Stigma and the Take-up of Social Assistance:Lnsights From Rural China[J].International Journal of Social Welfare,2017,26(3):230-238.
[32] 周雪光,练宏.中国政府的治理模式:一个“控制权”理论[J].社会学研究,2012(5):69-93.
[33] 印子.村级治理的“寡头定律”及其解释[J].华中农业大学学报(社会科学版),2018(2):120-126.
[34] 翟学伟.人情、面子与权力的再生产——情理社会中的社会交换方式[J].社会学研究,2004(5):48-57.
[35] 孙嫱.政策执行与村落应对:甘肃省Z镇的农村低保制度实践[J].宁夏社会科学,2016(3):149-154.
[36] O’Brien K J,Li L.Selective Policy Implementation in Rural China[J].Comparative Politics,1999,31(2):167-186.
[37] 关信平.朝向更加积极的社会救助制度——论新形势下我国社会救助制度的改革方向[J].中国行政管理,2014(7):16-20.
[38] 姚建平.中国城市低保瞄准困境:资格障碍、技术难题,还是政治影响?[J].社会科学,2018(3):61-72.
[39] 胡思洋,赵曼.逆向选择、道德风险与精准救助[J].国家行政学院学报,2017(1):94-98.
[2] Walle D V D.Assessing the Welfare Impacts of Public Spending[J].World Development,1998,26(3):365-379.
[3] 张健,熊贵彬,彭华民.新常态背景下的社会福利治理研究——第七届中国社会学社会福利论坛综述[J].社会工作,2016(1):115-120.
[4] 唐晓腾.中国乡村的嬗变与记忆:对城市化过程中农村社会现状中的实证观察[M].北京:中国社会科学出版社,2010:3-19.
[5] Coady D,Grosh M,Hoddinott J,et al.Targeting of Transfers in Developing Countries:Review of Experience and Lessons[J].World Bank Publications,2010,34(1):1-110.
[6] Vadapalli D K.Barriers and Challenges in Accessing Social Transfers and Role of Social Welfare Services in Improving Targeting Efficiency:A Study of Conditional Cash Transfer[J].Vulnerable Children &Youth Studies,2009,4(sup1):41-54.
[7] 童星,王增文.农村低保标准及其配套政策研究[J].天津社会科学,2010(2):49-51.
[8] 朱梦冰.精准扶贫重在精准识别贫困人口——农村低保政策的瞄准效果分析[J].中国社会科学,2017(9):90-112.
[9] Makdissi P,Wodon Q.Measuring Poverty Reduction and Targeting Performance Under Multiple Government Programs[J].Review of Development Economics,2004,8(4):573-582.
[10] Chen S,Ravallion M,Wang Y.Dibao:A Guaranteed Minimum Income in Urban China?[Z].World Bank Policy Research Working Paper,No.3805,2006.
[11] Li M,Walker R.Targeting Social Assistance:Dibao and Institutional Alienation in Rural China[J].Social Policy &Administration,2018,52(3):771-789.
[12] Ravallion M,Jalan J.Growth Divergence Due to Spatial Externalities[J].Economics Letters,1996,53(2):227-232.
[13] Tunstall R,Lupton R.Is Targeting Deprived Areas an Effective Means to Reach Poor People?An Assessment of One Rationale for Area-based Funding Programmes[R].CASE(Centre for Analysis of Social Exclusion,London School of Economics)Paper,No.70,2003.
[14] Jalan J,Ravallion M.Are There Dynamic Gains From A Poor-area Development Program?[J].Journal of Public Economics,1996,67(1):65-85.
[15] Conning J,Kevane M.Community-based Targeting Mechanisms for Social Safety Nets:A Critical Review[J].World Development,2002,30(3):375-394.
[16] Pierson P.The New Politics of the Welfare State[J].World Politics,1996,48(2):143-179.
[17] Park A,Wang S,Wu G.Regional Poverty Targeting in China[J].Journal of Public Economics,2002,86(1):123-153.
[18] 周雪光.基层政府间的“共谋现象”——一个政府行为的制度逻辑[J].社会学研究,2008(6):1-21.
[19] Lipsky M.Street-level Bureaucracy:The Dilemmas of the Individual in Public Service[J].Michigan Law Review,1980,3(4):102-104.
[20] 吕德文.乡村社会的治理[M].济南:山东人民出版社,2013:151-157.
[21] 李宜钊.政策执行中的复杂性研究[M].北京:人民出版社,2015:27-34.
[22] 朱亚鹏,刘云香.制度环境、自由裁量权与中国社会政策执行——以C市城市低保政策执行为例[J].中山大学学报(社会科学版),2014,54(6):159-168.
[23] Blank R M,Ruggles P.When Do Women Use Aid to Families With Dependent Children and Food Stamps?The Dynamics of Eligibility Versus Participation[J].Journal of Human Resources,2010,31(1):57-89.
[24] 何平.家计调查行为的法学思考[J].武汉理工大学学报(社会科学版),2014,27(2):287-291.
[25] Dorsett R,Heady C.The Take-up of Means-tested Benefits by Working Families With Children[J].Fiscal Studies,1991,12(4):22-32.
[26] 赵代博,程令伟.“价值理性”与福利政策瞄准偏差——基于甘肃省东部农村新农合的调查[J].社会保障研究,2017(3):60-66.
[27] 张瑞凯.中国农村居民社会福利意识研究——基于北京市的抽样调查[J].社会建设,2015(1):47-59.
[28] 汪雁,慈勤英.中国传统社会救济与城市贫困人口社会救助理念建设[J].人口学刊,2001(5):38-44.
[29] 方菲,李华燊.农村低保制度的伦理失范及其矫治探讨[J].求实,2010(8):89-92.
[30] 杨立雄,刘喜堂.当代中国社会救助制度:回顾与展望[M].北京:人民出版社,2012:66-67.
[31] Li M,Walker R.Shame,Stigma and the Take-up of Social Assistance:Lnsights From Rural China[J].International Journal of Social Welfare,2017,26(3):230-238.
[32] 周雪光,练宏.中国政府的治理模式:一个“控制权”理论[J].社会学研究,2012(5):69-93.
[33] 印子.村级治理的“寡头定律”及其解释[J].华中农业大学学报(社会科学版),2018(2):120-126.
[34] 翟学伟.人情、面子与权力的再生产——情理社会中的社会交换方式[J].社会学研究,2004(5):48-57.
[35] 孙嫱.政策执行与村落应对:甘肃省Z镇的农村低保制度实践[J].宁夏社会科学,2016(3):149-154.
[36] O’Brien K J,Li L.Selective Policy Implementation in Rural China[J].Comparative Politics,1999,31(2):167-186.
[37] 关信平.朝向更加积极的社会救助制度——论新形势下我国社会救助制度的改革方向[J].中国行政管理,2014(7):16-20.
[38] 姚建平.中国城市低保瞄准困境:资格障碍、技术难题,还是政治影响?[J].社会科学,2018(3):61-72.
[39] 胡思洋,赵曼.逆向选择、道德风险与精准救助[J].国家行政学院学报,2017(1):94-98.