贫困县退出的识别方法与运行机制研究

The identification method and operation mechanism for the exit of poverty counties

基于我国贫困县制度发展的分析,探讨贫困县退出的识别方法及运行机制。结果表明,始于1986年的贫困县制度,历经设立、初次调整、量化调整及调整权限下放4个阶段,促进了全国贫困人口的逐年减少和贫困发生率的不断下降。但由于我国贫困人口的分布呈现"大分散、小集中"的特点,导致以县为单位的扶贫政策精度不够。要确保2020年贫困县全部有序退出,提出了贫困县退出的精准识别方法,主要包括贫困县评价指标体系的构建、信息的采集、甄别与核实、贫困县扶贫绩效与贫困程度评估、贫困县和脱贫县识别与退出。识别贫困县和脱贫县的关键是构建贫困县扶贫绩效和贫困程度评估指标体系,其中扶贫绩效评价体系有温饱水平、生存环境、人文发展和减贫状况4个一级指标和16个二级指标;贫困程度评估指标体系涉及经济资本、人力资本和社会资本3个一级指标和17个二级指标。为鼓励脱贫县尽早有序退出,必须制定退出后的扶持政策、强化后续资金扶持、引导社会力量参与脱贫成果巩固、继续关注弱势群体等激励机制。为强制脱贫县尽早有序退出,必须建立和实施强制退出规制、取消贫困县扶持政策、停止拨付甚至追回扶贫资金等约束机制。

Based on the analysis of the development of poverty county system in China, this paper discussed the identification methods and operation mechanism for the exit of poverty counties. Results show that, since 1986, the poverty county system has gone through four stages： establishment stage, first adjustment stage, quantitative adjustment stage, and power decentralization stage. The system reduced the poverty population and the poverty rate in China substantially. However, because the distribution of the poverty population in China is characterized by “big dispersion with small concentration”, China’s current poverty alleviation policies are not enough. To ensure that all the poverty counties to exit orderly by 2020, this paper built a precision identification system for poverty counties, including the construction of the poverty county evaluation index, information collection, screening and verification, evaluation of poverty degree and the alleviation performance of poverty counties, and the identification and exit of poverty counties. The key component of the system is the evaluation of poverty degree and the alleviation performance of poverty counties. The evaluation of poverty degree incorporates 4 primary indicators including subsistence level, living environment, human development, and poverty reduction and 16 secondary indicators. While the evaluation of alleviation performance of poverty counties involves 3 primary indicators including economic capital, social capital and human capital and 17 secondary indicators. To encourage the early and orderly exit of poverty counties, this paper provides the following suggestions： to formulate support polices for the poverty counties after the exit, to strengthen follow-up fund support, to guide the participation of different social resources to stabilize the achievements of these counties, and to continue to monitor the status of the vulnerable groups. In addition, to force the exit of poverty counties, the Government should establish the compulsory exit regulations, abolish the support policies for poverty counties, and stop and even recourse the appropriation of the poverty alleviation funds.