我国农村低保的瞄准偏误与精英俘获问题

The Targeted Error of China’s Rural Subsistence Allowance and the Capture of Elites

低保瞄准为实现精准扶贫提供兜底保障。本文使用2015和2017年中国家庭金融调查数据估算中国农村低保的瞄准效率,发现农村低保救助资源相对贫困人口而言不足,瞄准偏误较大,存在经济精英和制度精英的俘获现象。其次,本文通过构建多维贫困识别标准排除贫困户和低保户的名额差异和标准差异,从而识别出各村庄中的应保户。之后,本文分别从农户层面和村庄层面进行精英俘获的实证分析,结果显示,农村低保政策执行过程中存在精英俘获现象,在低保名额的分配中中低收入水平的经济精英俘获较为明显,在低保金的分配中被认定为低保户的乡镇干部家庭会增加自身获得低保金的数额,村干部没有明显的精英俘获行为。此外,本文还发现贫困发生率增加会加剧错保现象,减少应保户获得的低保资源,增加非应保户对低保资源的俘获;低保补助资源的增加会增加非应保户对低保资源的俘获。

The establishment and implementation of the subsistence allowances for the people in the rural areas is to provide all-out guarantee for the realization of targeted poverty alleviation.We estimate the targeting efficiency of China's rural subsistence allowances by using the data of China Household Finance Survey(CHFS)in 2015 and 2017,and introduce that resources of rural subsistence allowances are insufficient relative to the poor population.We also find that there is a phenomenon of economic elite and institutional elite capture with targeting error.Secondly,we construct a Multidimensional Poverty identification standard to eliminate the quota difference and standard difference between destitute household and low-income families,so as to identify the households which really need to be insured in each village.After that,empirical analyses of elite capture are made from the perspective of farmers and villages.The results indicate that there is an elite capture phenomenon in the implementation of the rural subsistence allowances policy.In the distribution of the quota of rural subsistence allowances,low and middle income economic elites will capture insurance more obviously.After the distribution of quota,the township cadre families will increase their own security funds once are identified as the insured.In addition,we propose that the increase of poverty incidence will aggravate the phenomenon of misinsurance,reduce the resources of households who really need insurance and increase the elite capture.The increase of the subsidy resources will increase elite capture,too.