“四个问题”
以精准扶贫方略来实现“两不愁三保障”,消除绝对贫困,这相对于此前的贫困治理体系而言,不啻是一个难题,不仅需要加大资源的投入力度,而且需要在扶贫实践技术层面进行创新。首先,精准扶贫作为一项自上而下推行的社会政策,其本身就面临科层结构造成政策走样的风险。其次,在目前由且只能由政府主导的贫困治理体制下,贫困人群多元化的减贫需求亦面临“政府失灵”的困境。再次,由于层级治理信息不对称等问题的客观存在,地方政府、扶贫对象等的机会主义行为也难以避免。这些都构成了“精准”的客观障碍。在具体实践中,这些难题集中体现为“扶持谁、谁来扶、怎么扶、如何退”四个问题。以习近平扶贫论述为根本遵循,脱贫攻坚系统性地破解了这四个问题在实践中面临的各种障碍。
具体而言,解决好“扶持谁”问题,要坚持精准扶贫、精准脱贫,逐村逐户开展贫困识别,对识别出的贫困村、贫困户建档立卡,通过“回头看”和甄别调整,不断提高识别准确率。解决好“谁来扶”问题,关键在于责任落实到人。全国累计选派300多万县级以上机关、国有企事业单位干部参加驻村帮扶,一线扶贫力量明显加强,打通了精准扶贫“最后一公里”。解决好“怎么扶”问题,要实施“五个一批”工程,即发展生产脱贫一批、易地搬迁脱贫一批、生态补偿脱贫一批、发展教育脱贫一批、社会保障兜底一批,开对“药方子”,拔掉“穷根子”。解决好“如何退”问题,一是设定时间表,实现贫困县有序退出;二是留出缓冲期,在一定时间内实行摘帽不摘政策;三是实行严格评估,按照摘帽标准验收;四是实行逐户销号,做到脱贫到人。
Four Key Issues in Poverty Alleviation
To guarantee that the people have their basic living needs and access to compulsory education, basic medical services and safe housing, and to eliminate absolute poverty, through targeted alleviation measures – this is a great challenge, as great inputs of resources and creative measures and mechanisms are required.
First, this top-down social policy might not be carried out to the letter due to the administrative hierarchy. Second, under the current government-dominated poverty governance system, the diverse needs of the impoverished people may face problems of “government failure.” Third, due to the asymmetric information in hierarchy management, opportunist actions by local governments and the recipients of aid are unavoidable. All these pose objective obstacles to “targeted” assistance.
In practice, these obstacles often emerge as “four key issues in poverty alleviation” – who needs help, who provides help, how to help, and how to be removed from the poverty list.
To be specific, to find out “who needs help,” it is necessary to identify and register poor villages and poor households, with timely adjustment through follow-up checks for accuracy.
To determine “who provides help,” responsibilities have to be specified. Over three million officials have been dispatched to poor villages to reinforce the front line.
To answer the question of “how to help,” five targeted measures are employed according to local conditions: boosting the economy to create more jobs for the disadvantaged, relocating those living under adverse natural conditions, providing eco-jobs for impoverished people, improving education in poor areas, and improving social security for poverty elimination.
As to the question of “how to be removed from the poverty list,” a timetable has been set for the poor counties to be removed from the poverty list; there will be a grace period when they can continue to enjoy relevant preferential policies; strict evaluation will be conducted in line with relevant standards; and each person and each household will be removed from the poverty list only if they meet these standards.
