精准扶贫与农村低保的制度绩效问题
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摘要
当代中国农村反贫困取得了巨大成绩,主要原因来自于持续的经济增长、城市化和市场化。中国设置了双重反贫困制度:农村最低生活保障制度(含特困人群救助制度)和精准扶贫政策。前者是对所有家庭收入低于最低生活保障线农户进行无条件的"补差",后者则是对低于贫困线农户家庭进行的以生产为主的帮扶。当前全国农村低保制度已经十分完善,成为最大的惠民工程之一,扶贫政策成效却不能让人满意。造成低保制度与扶贫政策实践制度绩效巨大反差的原因在于扶贫政策本身的设计缺陷,包括贫困户识别偏差、数据库管理僵化以及目标错位和制度错位。在已经形成相对健全完善的农村低保制度的情况下,扶贫政策的重点应该是区域开发,而不是具体帮扶农户。
In contemporary China, rural anti-poverty work has achieved great results, mainly attributed to sustained economic growth, urbanization and marketization. China has set up a dual poverty alleviation system: rural subsistence allowance system(including special difficulty group relief system) and a precise poverty alleviation policy. The former is an unconditional "replenishment" for all households whose income is lower than the minimum living security line. It is a production-oriented assistance for households below the poverty line. At present, the national rural subsistence allowance system has been complete and has become one of the largest projects for the benefit of the people. However, the effectiveness of the poverty alleviation policy is not satisfactory. The reason for the contrast between the performance of the subsistence allowance system and the poverty alleviation policy practice system lies in the flaws of designing of the poverty alleviation policy itself, including inadequacy in identification, rigidity in database management, target misplacement and institutional dislocation. Under the circumstanceswhere a relatively sound and perfect rural subsistence allowance system has been formed, the focus of the poverty alleviation policy should be regional development, instead of specific assistance to rural households.
In contemporary China, rural anti-poverty work has achieved great results, mainly attributed to sustained economic growth, urbanization and marketization. China has set up a dual poverty alleviation system: rural subsistence allowance system(including special difficulty group relief system) and a precise poverty alleviation policy. The former is an unconditional "replenishment" for all households whose income is lower than the minimum living security line. It is a production-oriented assistance for households below the poverty line. At present, the national rural subsistence allowance system has been complete and has become one of the largest projects for the benefit of the people. However, the effectiveness of the poverty alleviation policy is not satisfactory. The reason for the contrast between the performance of the subsistence allowance system and the poverty alleviation policy practice system lies in the flaws of designing of the poverty alleviation policy itself, including inadequacy in identification, rigidity in database management, target misplacement and institutional dislocation. Under the circumstanceswhere a relatively sound and perfect rural subsistence allowance system has been formed, the focus of the poverty alleviation policy should be regional development, instead of specific assistance to rural households.
引文
[1]贺雪峰.中国农村反贫困战略中的扶贫政策与社会保障政策[J].武汉大学学报,2018,(3).
[2]许汉泽,李小云.精准扶贫背景下农村产业扶贫的实践困境[J].西北农林科技大学学报,2017,(1).
[3]贺海波.贫困文化与精准扶贫的一种实践困境[J].社会科学,2018,(1).
(1)关于农民收入断裂带的具体讨论,可以参看贺雪峰:《农民收入分层结构的断裂性》,载《决策》2018年第6期。
[2]许汉泽,李小云.精准扶贫背景下农村产业扶贫的实践困境[J].西北农林科技大学学报,2017,(1).
[3]贺海波.贫困文化与精准扶贫的一种实践困境[J].社会科学,2018,(1).
(1)关于农民收入断裂带的具体讨论,可以参看贺雪峰:《农民收入分层结构的断裂性》,载《决策》2018年第6期。