论文标题:转型期中国反贫困机制与对策研究
Mechanism & Strategy Research on China"s Anti-poverty Movement During the Transition Period
论文作者 曹文道
论文导师 朱希刚,论文学位 博士,论文专业 农业经济及管理
论文单位 中国农业科学院,点击次数 32,论文页数 149页File Size5838k
2000-07-01论文网 http://www.lw23.com/lunwen_194987987/ 转型、贫困、机制、对策
Transition,Poverty,Mechanism & Strategy
贫困问题是当今人类社会共同面临的最严峻的挑战之一。中国政府自建国以来，一直致力于发展生产、消除贫困的工作。但真正严格意义上的扶贫，是在改革开放以后提出并逐步明确的。中国扶贫开发20年的历程大致可分为三个阶段：第一阶段（1978—1985）体制改革推动扶贫阶段；第二阶段（1986—1993）有计划、有组织大规模的开发式扶贫阶段；第三阶段（1994-2000）扶贫攻坚阶段。 中国的反贫困是特定历史条件下的产物。研究中国反贫困问题必须研究宏观经济背景及其与贫困的相互关系。中国反贫困最大的背景就是中国反贫困战略的制定和实施与中国经济转型期相一致。应当说，中国反贫困政策和战略的制定无不打上转型的烙印，同时，转型发展对贫困和反贫困也产生深远的影响。 转型是从计划经济体制过渡到市场经济体制，从不发达经济过渡到发达经济，这两种过渡在中国现阶段是结合在一起的。转型期对中国反贫困的影响是深入的，转型与发展相互促进，为中国大面积消除贫困创造了基本前提和条件；但转型发展同样没有能够避免对消除贫困的消极影响，经济发展与扶贫具有不同的本质和目标追求，而且增长的好处并不能自动惠及贫困群体。中国经济的高速增长在缓解贫困方面的作用是巨大的，模型分析：GDP每增长1％，贫困发生率会降低0.56个百分点。但是，经济增长对缓解贫困的作用，明显地受到经济增长的地区和行业构成的影响。而且经济增长带来的收入增长并未在城乡居民之间进行公平的分配，导致贫困集中与贫困加剧。 中国政府是反贫困资金的主要提供者。从1986年到1999年，中国政府安排财政资金、信贷扶贫资金以及以工代赈资金等扶贫专项资金累计达到了1378.1亿元。但在实施操作过程中普遍存在扶贫资金不能直接到贫困户、使用效率低、用于贫困县财政补贴资金比例过高、贷款回收率低、违规甚至违法操作等问题。 中国反贫困资源投放和使用中存在问题主要源于传统计划经济条件下对反贫资源的配置机制。在这种机制下，反贫资源配置和管理必然是一种政府行为。多层次、多目标、多利益主体以及不计成本、不讲效率、不负责任是一种必然的结果。因此，反贫困投资机制的创新必须彻底打破计划经济的机制，确实转移到市场经济机制的轨道上来。第一、建立反贫资源有偿使用机制。因为，扶贫资源的有偿使用可以杜绝资源分配过程中的“寻租”行为，可以激发贫困者内在活力，培养贫困农户的市场主体意识，形成有效的监督和约束机制。第二、建立可持续性的反贫金融机制。其总体目标是通过促进贫困地区农村金融的持续健康发展．使更多的穷人可以持续地享受到优质的金融服务，从而实现脱贫致宫。其思路是：在建立和完善贫困地区农村合作金融的基础上，大力引进小额信贷，使得贫穷农民无须抵押即可获得贷款，从而使穷人能够享受正常的金融服务，形成符合我国贫困地区实际的金融扶贫新机制。这种机制可以实现了小额信贷和农村合作金融的优势互补，可以更好地加快贫困地区农村金融的持续稳定发展；可以减少金融风险，包括借贷风险和管理风险，甚至是政治风险；可以降低金融交易成本；可以实现机构财务上的持续性。第三、建立反贫投资的监测和评估机制。其中包括（l）建立识别和动态监测贫困人口指标体系；（2）建立独立于扶贫机构的监督机制；（3）建立项目全方位评估机制： 进行反贫困机制创新必须加速贫困地区的科技进步。科技部十五年科技扶贫的实践证明：科技扶贫使先进实用的科学技术和现代管理科学的理念、手段及方法向落后贫困地区迅速地传括、渗透和扩散，融人贫困地区传统的生产力各要素中去，从而引起生产手段的不断革新、劳动对象的不断扩大、劳动者的素质不断提高，逐步改变和增强贫困地区的生产力系统功能，促进贫困地区技术进步和经济发展，加快脱贫致宫的步伐。随着新世纪的到来，科技扶贫将发挥越来越大的作用。加快贫困地区的科技进步，必须：第一、贫困地区应把科技成果的引进、消化、吸收和创新作为摆脱贫困的重要战略，努力提高贫困人口自身素质和能力；第二、大力促进贫困地区农业和农村科技进步；第三、依靠科技进步振兴贫困地区传统支柱产业和培育新兴产业．第四、健全社会化科技服务体系：第五、建立健全促进贫困地区科技进步的环境与机制． 贫困地区在向市场经济转型过程，政府应当发挥什么作用？贫困地区政府在促进地方经济增长，加快农民脱贫致宜进程中发挥了积极的作用，做出了巨大的贡献。但是，受到长期传统的计划经济体制的影响，贫困地区政府在向市场体制转型过程中往往难以适应，其行为表现诸多不合理的地方。例如短期行为、随意干预行为、封闭行为等等．因此，建立有效的反贫困机制必须正确界定政府的反困职能。反贫困作为一种公共物品，政府职能必须提供基本社会服务设施，以确保机会均等；确保人们对信贷等至关重要的资源享有平等机会：创造一个能够增
Poverty is one of the most serious challenges confronting all human societies. Since the foundation of P.R.C, great efforts have been made by the government to promote productivity and alleviate its poverty. But in real term, China has begun its anti-poverty campaign in the end of 1970, when China initiated major rural economic reforms and open-door policy. The progress of 20 years poverty alleviation in China could be divided into three stages. The first stage, from 1978 to 1985, is poverty alleviation through the system reformation; the second stage, from 1986 to 1993, is poverty alleviation in a planned and organized way, and in large scale; the third, from 1994 to 2000, a stage of tackling the hard-core poor. Anti-poverty in China comes out of special historical condition. And the most basic background was that the formulating and implementation of anti-poverty strategy was consistent with China抯 economy transition. It is to say that all of the strategy and measures of anti-poverty in China were labeled with the transformation, meanwhile, the transformation also awfully affects anti-poverty. Transition means transform from planned economy system to market economy system, from undeveloped economy to developed economy, these two kinds of transformation were combined together in current China. The transformation deeply affected China anti-poverty strategy. Transformation and development promoted each other, and formed the essential conditions of poverty alleviation. But they could not avoid the negative function to poverty alleviation. Economy growth and poverty alleviation has different essence and target. Besides, economy growth can抰 benefit the poor. High economic growth rate in China played important role in poverty alleviation. The result of model analysis shows that 1% increasing of GDP will decrease the incidence of poverty at 0.56%. But the role of economy development upon poverty alleviation was obvious affected by different region and industries. Moreover, the income increasing from economy growth could not be disflibuted fairly between urban and rural inhabitants, which intensified the poverty status. China government is the main resource provider of poverty alleviation. Among 1986 to 1999, it had mobilized totally up to 137.81 billion RMB specially funds for poverty alleviation in term of government allocated funds,. subsidies loans from the Agricultural Bank of China and food-for-work funds (in-kind), etc. But in the procedure of carrying out, issues always occurred like fund could not be got directly by poor habitants, low effective of fund running, too high ratio of fund for fiscal subsidies in poor counties, low ratio of loan repayment, and irregular or illegal operation of fund, etc. The problems aroused from the allocation and utilization of China anti-poverty resources mainly resulted from the anti-poverty resources allocating mechanism formulated in the traditional planning economy system. Under this mechanism, anti- poverty allocation and management must be a government behavior, which emphasizes on the various levels, multi-proposes, and different beneficiary and make no account of the cost, efficiency and take no responsibility. Therefore, the innovation of anti-poverty investment mechanism must totally abandon the old one formed in the planned economy system, and turn up to the track of market economy system. First, set up new mechanism that the anti-poverty resources are used in non-gratuitous. Second, set up a sustainable and-poverty financial mechan
|
