中国农村扶贫政策及成效研究
摘要
作为人类社会经济发展过程中所面临的一个共同问题,贫困同人口和污染一起构成人类社会的三大难题之一,是全球性社会现象,是经济、社会、政治、文化发展不平衡和地理自然生态条件差异以及人类个体差异综合作用的结果。中国是世界上人口最多的发展中国家,落后的经济发展水平和大量的农村人口使得中国长期饱受农村贫困问题的困扰。改革开放之后,为了缓解十分严重的农村贫困,中国进行了一系列的体制改革和制度创新。中国的农村反贫困取得了辉煌的成就,绝大多数农村人口的温饱问题已经基本得到解决。然而,中国农村的贫困标准还很低,脆弱的生态环境、薄弱的基础设施以及并不健全的市场机制和各项制度制约着中国农村反贫困的进程。在新时期,对中国农村贫困问题进行研究,有利于加快贫困人口的脱贫步伐,有利于实现可持续经济发展,有利于构建社会主义新农村,有利于适应改革、发展、稳定的客观要求,有着极其重要的政治、经济和社会意义。我国农村贫困问题的理论研究跟不上实践的步伐,找出制约我国农村的贫困因素,分析我国农村反贫困路径的针对性,探索提出我国农村反贫困的有效政策。
在此背景下,本研究针对中国农村贫困的新特征,分析农村反贫困的各种制约瓶颈,通过对扶贫项目、重要扶贫措施对减贫影响程度和成效的研究,以及对农村扶贫政策成效形成的要素和机制的讨论,对我国农村扶贫成效做出合理的评价。指出我国农村反贫困应从开发人力资源入手,坚持政府主导、社会参与的方针,实施党政机关定点扶贫,实施扶贫开发整村推进计划,推进小额信贷,建立社会保障机制。探讨建立中国农村的反贫困模式,进一步减少或消除农村贫困,提出相应的农村扶贫政策建议。探索进一步优化政府扶贫政策的机制,包括建立良好的扶贫治理结构框架,构建相互协调的一体化城乡扶贫体系,理顺信贷扶贫体制和金融部门参与的切入点。同时,注重民间组织的减贫作用,激励与追究并用;加强贫困地区人口的教育和劳动力培训,对农村贫困地区的基础教育与成人教育赋予同样重要的地位,提升当前劳动力及潜在劳动力的人力资本水平;完善农村贫困地区人口的健康服务,建立健全农村贫困地区的社会保障体系。发挥政府、社会和市场三方面的功能,这不仅关系到农村贫困人口生活水平的改善和提高,从而提高中国政府农村扶贫政策的成效,同时还将对中国建设社会主义新农村和构建和谐小康社会的整体战略产生积极影响。
此外,根据研究,也得到如下结论,即扶贫成效的评价不应只以贫困人口减少量、贫困人口收入增加多少来衡量。政府扶贫成效会越来越多地体现在贫困人口发展机会的增加和自身能力的提高方面。政府不断增加公共品和服务的供给将直接提高政府的扶贫成效。
As a common problem in the process of human's economic development, poverty is one of difficulties of human society with population and pollution. China is a developing country with the most population in the world, troubled by rural poverty because of lagged economy and much rural population. Since reform and openness, for alleviating serious rural poverty problem, China has performed some system reform and innovation which has achieved great result and resolve most rural population's survival problem. However, low poverty standard of China's rural area, frail environment, poor infrastructure, imperfect market system and other mechanism limit the progress of China's rural poverty reduction.
China's rural poverty reduction has to slip into a new stage. In this stage, the research on China's rural poverty problem will benefit the following problems: poverty reduction, sustainable development, building socialism new countryside, keeping China's reform, development and stability. Therefore, such research is significant on China's polity, economy and society development. The reality is, in China, the theory on rural poverty reduction is lagged behind practice. Therefore, it is a good way to understand how to reduce poverty in rural area through finding out the factors leading to rural poverty and analyzing on the rural poverty reduction.
At this background, the dissertation's first purpose is to analysis the factors causing rural poverty with the new natures of China's rural poverty. On the other side, the paper hopes evaluate the government's policy for rural poverty reduction through analyzing existing poverty reduction policies and projects and discussing the mechanism of an effective rural poverty reduction policy. Moreover, the paper argues that the rural poverty reduction pattern in China is government-oriented with social participation. At the same time, we should develop human resource, apply pointing poverty reduction, promote integrated village development plan and micro-finance and built up social security system. And this paper also argues how to reduce China's rural poverty and point out some policies and advices to improve the policy efficiency of reducing rural poverty accordingly, such as: designing good poverty reduction governance framework, building up harmonious city and countryside poverty reduction system, encouraging the participation of financial section and social community and perfecting supervising and incentive mechanism. At the same time, we should improve education level of rural poor population, including basic and adult education, in order to increase existing and potential human capital level. We also should perfect social security system in rural poor area, which both improves living level of rural pool people and benefits the strategy of building up China socialism new countryside and harmonious society.
Besides, we also concludes that it is not enough to evaluate the effect of government poverty reduction policy only on the basis of how much poor people decrease and how much poor people's income increase. In the future, the effect of government poverty reduction policy will more and more be presented by the increase of developing opportunity and capacity of poor people ourselves. So the government will supply public goods and services increasingly in order to achieve the goals of reducing poverty.
在此背景下,本研究针对中国农村贫困的新特征,分析农村反贫困的各种制约瓶颈,通过对扶贫项目、重要扶贫措施对减贫影响程度和成效的研究,以及对农村扶贫政策成效形成的要素和机制的讨论,对我国农村扶贫成效做出合理的评价。指出我国农村反贫困应从开发人力资源入手,坚持政府主导、社会参与的方针,实施党政机关定点扶贫,实施扶贫开发整村推进计划,推进小额信贷,建立社会保障机制。探讨建立中国农村的反贫困模式,进一步减少或消除农村贫困,提出相应的农村扶贫政策建议。探索进一步优化政府扶贫政策的机制,包括建立良好的扶贫治理结构框架,构建相互协调的一体化城乡扶贫体系,理顺信贷扶贫体制和金融部门参与的切入点。同时,注重民间组织的减贫作用,激励与追究并用;加强贫困地区人口的教育和劳动力培训,对农村贫困地区的基础教育与成人教育赋予同样重要的地位,提升当前劳动力及潜在劳动力的人力资本水平;完善农村贫困地区人口的健康服务,建立健全农村贫困地区的社会保障体系。发挥政府、社会和市场三方面的功能,这不仅关系到农村贫困人口生活水平的改善和提高,从而提高中国政府农村扶贫政策的成效,同时还将对中国建设社会主义新农村和构建和谐小康社会的整体战略产生积极影响。
此外,根据研究,也得到如下结论,即扶贫成效的评价不应只以贫困人口减少量、贫困人口收入增加多少来衡量。政府扶贫成效会越来越多地体现在贫困人口发展机会的增加和自身能力的提高方面。政府不断增加公共品和服务的供给将直接提高政府的扶贫成效。
As a common problem in the process of human's economic development, poverty is one of difficulties of human society with population and pollution. China is a developing country with the most population in the world, troubled by rural poverty because of lagged economy and much rural population. Since reform and openness, for alleviating serious rural poverty problem, China has performed some system reform and innovation which has achieved great result and resolve most rural population's survival problem. However, low poverty standard of China's rural area, frail environment, poor infrastructure, imperfect market system and other mechanism limit the progress of China's rural poverty reduction.
China's rural poverty reduction has to slip into a new stage. In this stage, the research on China's rural poverty problem will benefit the following problems: poverty reduction, sustainable development, building socialism new countryside, keeping China's reform, development and stability. Therefore, such research is significant on China's polity, economy and society development. The reality is, in China, the theory on rural poverty reduction is lagged behind practice. Therefore, it is a good way to understand how to reduce poverty in rural area through finding out the factors leading to rural poverty and analyzing on the rural poverty reduction.
At this background, the dissertation's first purpose is to analysis the factors causing rural poverty with the new natures of China's rural poverty. On the other side, the paper hopes evaluate the government's policy for rural poverty reduction through analyzing existing poverty reduction policies and projects and discussing the mechanism of an effective rural poverty reduction policy. Moreover, the paper argues that the rural poverty reduction pattern in China is government-oriented with social participation. At the same time, we should develop human resource, apply pointing poverty reduction, promote integrated village development plan and micro-finance and built up social security system. And this paper also argues how to reduce China's rural poverty and point out some policies and advices to improve the policy efficiency of reducing rural poverty accordingly, such as: designing good poverty reduction governance framework, building up harmonious city and countryside poverty reduction system, encouraging the participation of financial section and social community and perfecting supervising and incentive mechanism. At the same time, we should improve education level of rural poor population, including basic and adult education, in order to increase existing and potential human capital level. We also should perfect social security system in rural poor area, which both improves living level of rural pool people and benefits the strategy of building up China socialism new countryside and harmonious society.
Besides, we also concludes that it is not enough to evaluate the effect of government poverty reduction policy only on the basis of how much poor people decrease and how much poor people's income increase. In the future, the effect of government poverty reduction policy will more and more be presented by the increase of developing opportunity and capacity of poor people ourselves. So the government will supply public goods and services increasingly in order to achieve the goals of reducing poverty.
引文
[1]中国农村统计年鉴,国家统计局农村社会经济调查司,2005年。
[2]新阶段农村扶贫开发”研究课题,财政部农业司等,2004年
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[2]评估贫困程度以及比较贫困率所面临的问题不止于数据的可获得性,问题之一就是选择收入还是选择消费作为福利指标。收入一般来说更能精确衡量,而消费更接近于生活水平。此外,即使在生活水平不变的时候收入也可以随时间而变化。但是消费数据不总是能得到。在对家庭平均收入进行调整时,使用收入数据得到的平均值比使用消费数据高,但不平等性也更大。世界银行,《2005年世界发展指标》(2005 World Development Indicator),戴敏华等译,北京:中国财政经济出版社,2005.10
[1]马丁·瑞沃林(Martin Ravallion):《贫困的比较》(Poverty Comparisons),赵俊超译,北京:北京大学出版社,2005.9 P6
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[1]《<中国农村扶贫开发纲要(2001-2010年)>中期评估政策报告》,第35页
[1]《<中国农村扶贫开发纲要(2001-2010年)>中期评估政策报告》,第36页
[2]《<中国农村扶贫开发纲要(2001-2010年)>中期评估政策报告》,第37页
[1]《<中国农村扶贫开发纲要(2001-2010年)>中期评估政策报告》,第39页
[2]《<中国农村扶贫开发纲要(2001-2010年)>中期评估政策报告》,第39页
[1]《<中国农村扶贫开发纲要(2001-2010年)>中期评估政策报告》,第38页
[1]国家统计局:《2005中国农村贫困监测报告》,中国统计出版社,2006,第9页
[1]数据来源:《中国农村贫困监测报告》,2006年,中国统计出版社,2006
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[3]关于贫困人口的分类参见本文第五章第一小节相关内容。
[4]Bhagwati,J.N.(1988)"Poverty and Public Policy" World Development,Vol.16 pp.539-555.
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[2]评估贫困程度以及比较贫困率所面临的问题不止于数据的可获得性,问题之一就是选择收入还是选择消费作为福利指标。收入一般来说更能精确衡量,而消费更接近于生活水平。此外,即使在生活水平不变的时候收入也可以随时间而变化。但是消费数据不总是能得到。在对家庭平均收入进行调整时,使用收入数据得到的平均值比使用消费数据高,但不平等性也更大。世界银行,《2005年世界发展指标》(2005 World Development Indicator),戴敏华等译,北京:中国财政经济出版社,2005.10
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