贫困治理的中国创新——基于中国家庭金融调查驻村第一书记数据的分析

Chinese Innovation in Poverty Governance——Analysis based on Village Party Secretary on Secondment Data of China Household Finance Survey

第一书记帮扶制度是中国创新性提出的一项以国家行政力量主导,对农村进行人力资源投入的扶贫方式。本文运用中国家庭金融调查(CHFS)2015~2017年面板数据考察第一书记帮扶制度对农村减贫的政策效果和影响机制,实证结果表明,第一书记对农村减贫起到了明显的积极作用,贫困户的绝对数量和相对比例均显著下降。这一积极作用主要来源于两个渠道:首先,第一书记为村庄带来了更多的扶贫资源,让更多农户获得了低保补贴,也提高了有生产经营项目农户的小额信贷获贷率;第二,第一书记在基层治理中起到了监督作用,显著减少了扶贫政策末端执行的瞄准偏误和精英俘获。除此之外,本文还对第一书记的派驻特征进行了分析,发现村庄的贫困程度和治理难度是分派第一书记的优先考虑因素。这一结果初步表明了第一书记帮扶制度在人力资源分配上的合理性。第一书记帮扶制度的成功实践,为世界扶贫事业贡献了中国方案,也说明贫困治理不能完全交给市场,以行政手段进行资源的整合与调动是贫困治理的必要补充。

The Village Party Secretary on Secondment(VPSS)program is an innovative poverty alleviation meth⁃od proposed by China,which is led by national administrative forces and invests human resources in rural areas.This paper uses the panel data of China Household Finance Survey(CHFS)from 2015 to 2017 to examine the effect and impact mechanism of the VPSS program on rural poverty reduction.The empirical results of this paper show that the VPSSs have played a significant positive role in rural poverty alleviation,the absolute number and relative pro⁃portion of the poor have declined significantly.We find that this positive effect mainly comes from two channels:first⁃ly,the VPSSs have brought more poverty alleviation resources to the village,so that more farmers have received mini⁃mum subsistence allowances,and it has also increased the microfinance acquisition rate of farmers with production and business projects.Secondly,the VPSSs played a supervisory role in grassroots governance,significantly reduce the targeting bias and the capture of elites in the implementation of poverty alleviation policies.In addition,this pa⁃per also analyzes the assignment characteristics of the VPSSs.We find that the poverty level and governance difficul⁃ty of the village are the priority factors for assigning the VPSSs.This result initially indicates the rationality of the VPSS program in the allocation of human resources.The successful practice of the VPSS program has contributed to the Chinese plan for the world poverty governance.It also shows that poverty governance cannot be completely hand⁃ed over to the market,the integration and mobilization of resources by administrative measures is a necessary supple⁃ment to poverty governance.