政府的减贫计划如何使资源有效向穷人传递？ How should government make and implement specific poverty reduction program to effectively transfer resources to the poor? Wang Sangui School of Agricultural Economics and Rural Development, Renmin University of China

一、中国的减贫计划 Poverty Reduction Programs in China 农村的开发式扶贫计划 Development oriented PR programs in rural China 整村推进 Integrated village development plan (IVDP) 劳动力转移培训 Promoting migration through labor training 农业产业化扶贫 Development of agribusiness 自愿移民搬迁 Voluntary resettlement 农村的最低生活保障计划 Minimum living standard program in rural China 城市的最低生活保障计划

二、中国减贫计划的特点 Main Features of China’s PR Programs 不同的计划采用不同的瞄准和资源传递方式 Various targeting and resource delivering mechanism are used in different programs 农村开发式扶贫计划以区域瞄准为主，多种类型的机构参与了资源传递 Regional targeting is adopted in development oriented PR programs in rural areas and various institutions participate in resource delivering 整村推进采用村级瞄准并由政府直接将资源传递到贫困村 Community targeting is adopted in IVDP and governments directly deliver resources to identified poor villages 劳动力转移培训采用区域和家庭瞄准相结合 A combination of regional and household targeting is used in labor training program 首先瞄准592个贫困县 592 key poor counties are the main targets 然后再识别受益家庭 County governments then identify beneficial households 资源通过职业培训学校来传递 Resources are delivered through vocational schools 农业产业化扶贫采用区域瞄准，但通过龙头企业来传递资源 Regional targeting is used in agribusiness program and resources are delivered through agricultural enterprises 自愿移民搬迁由政府将资源传递到生态环境脆弱的社区，但在新的迁入地使用这些资源 Resources are delivered by governments to ecological fragile communities and then used in newly settled areas in voluntary resettlement program 城市和农村的低保计划采用家庭或个人瞄准，资源由政府直接传递 Households or individual targeting are adopted in minimum living standard program in both urban and rural areas and resources are delivered through government agencies

三、减贫计划在瞄准和资源传递方面的成效 Effectiveness of Poverty Targeting and Resource Delivering 农村的开发式扶贫计划能够将大部分资源传递到瞄准的区域 The majority of PR funds has been successfully delivered to the targeted areas 绝大部分财政发展资金和以工代赈资金通过政村推进传递到了贫困村 The majority of budgetary development fund and food-for-work fund are channeled to poor villages for IVDP 劳动力转移培训的资金基本都传递到了贫困县 Fund for labor training has reached key poor counties 一部分贴息贷款资金通过扶贫产业化龙头企业传递到贫困县 Part of subsidized load is channeled to poor counties through agricultural enterprises 移民搬迁的资金基本传递到移民新村重点用于基础设施建设 Funds for resettlement are delivered to communities and used for infrastructure construction 三分之二以上的城镇低保资金传递到了人均收入低于低保线的低收入家庭 Over two thirds of the fund for minimum living standard program in urban China have been successfully delivered to households with per capita income below the Dibao line 农村低保刚刚起步，瞄准的准确性还很难评价 It is too early to assess the accuracy of targeting and resource delivering of the rural Dibao since it just started

四、面临的主要问题 Main Challenges 主要的挑战来自于如何在贫困地区（社区）内部将资源传递给贫困人口 How to deliver resources to poor households within the targeted regions (communities) is a major challenge in all programs in rural areas 整村推进更多的是使贫困村内部相对富裕的人受益 Most of the resources and benefits are enjoyed by relative rich household in IVDP villages 其它的扶贫项目也有类似的问题 Similar problem exists in other programs 社区内部不能使贫困人口同等受益的原因是项目的实施方式有问题，而且缺乏有效的监测评估 Inappropriate implementation of the programs and lack of monitoring and evaluation are the main causes for poor people unable to equally benefit from the programs 追求项目本身的完成数量而不是扶持的贫困人口 Pursuing the quantity of projects being completed rather than poor population being assisted 要求参与农户大比例的资源配套 Requiring large portion of resources matched by households who want to participate in the programs 没有有效的监测评估机制 Lack of monitoring and evaluation mechanism

五、如何使减贫计划更有针对性 How to Make PR Programs More Effective 加强对贫困家庭的识别，如通过参与式方式的有效的建档立卡 Improve the identification of poor households through participatory approaches 对贫困人口和非贫困人口在参与项目的方式上区别对待 Different requirements are used for poor and non-poor people to participate in the programs 采用自动瞄准机制 Adopt self-targeting mechanisms 建立项目的监测评估机制 Establish effective monitoring and evaluation system